PROFILINGDEVELOPMENT ESTUARY MANAGEMENT PLANNING IN SOUTH IN INTEGRATEDAFRICA WITH PARTICULAR REFERENCE TO THE EASTERN PROVINCE By CAPE Lesley McGwynne,AlanMargaret Carter, Jane McKenzie, Duncan Turpie, Hay, SteveLara Stephen Mitchell, Hosking, Nhlanhla Schonegevel, Susan Taljaard, Aidan Wood van Niekerk, Charles Breen, Takalani Maswime, Sihiophe, Lucille Centre for Environment,Prepared Agriculture for the and Water Research Commission The University of KwaZulu Natal Development at by the ISBNSETWRC 978-1-77005-540-7No Report 978-1-77005-539-1 No 1485/1/07 March 2007 DISCLAIMER approvedThis report reflectfor publication. has the beenviews reviewedApproval and policies commercialbydoes the of not theWater signify WRC, products Research thatnor doestheconstitute Commission contents mention endorsement or recommendation of trade names or (WRC)necessarily andfor use. Note:Table Making of Contents use of this report iv AbstractAcknowledgements Introduction .vvi i IntegratingEstuariesThe Responsibilities of Estuary the Eastern Management of Local Cape Government and into their the Management IDP process - an Assessment..15 37 Appendices: ReferencesProfiling Estuary Management in Integrated Development Planning 3025 levelsthroughinformationMcGwynne collaboration and L andknowledge McKenzie between on estuariesresearchers M (2006). into and Policiesthe authorities IDP andand related proceduresat local, district for incorporatingand provincial processes are established ManagementvanandeconomicTurpie Niekerk protocol J, Sihlophe benefits L,in for SouthTaljaard incorporating N,of Africa: estuariesCarter S and Training A, Schonegevel and throughMaswime enhancing Course integrated T LandManual. estuary(2006) Hosking planning valuesIntroductory S (2006). andin planning management: CourseMaximising and to Estuarine the socio- management a rationale

111 This report comprises three sets of documentation. Note: Making use of this report Thethat arethreefmal appended reportappended itself together research/technical which with comprises a synthesis reports a summary of the of fmdings three research/technical reports ManagernecessarywithTwo ancompact 's electronic Guide. to run discs. Thean copy estuary The second, offirst Estuariesmanagement producedcontains and the by IntegratedDevelopment fmalthe CSIR, report contains training course: and its appendices together all the materialPlanning: A PowerPointCourseCertificateSet of manual instructor'PowerPoint presentation of attendance s notespresentations of the short for course each module

iv Acknowledgements Tyolomnqa,stakeholdersFirstStakeholders and foremost, Mngazana, in the Easternthe programmeMzintlava Cape and and team beyond, Mtentu acknowledges estuaries.particularly It the isthose fromsupport participating it has received in from all you that we learn our most processes at FundersofMunicipalityMrsvaluable the Lope estuary lessons Quiste andmanagement about Mrof theAndrew local Port training management StMather Johns initiative. of Municipality, the challenges. eThekwini ParticularMr Municipality Willie mention Maritz for ofensuringneeds the toBuffalo bethe made City of success The following core funders have been instrumental in the WaterNorwegianDepartmentTony Research and GovernmentLisetteof Environmental Commission Lewis through Foundation Affairs the NORSA and Tourism Agreement success of this project: In addition, valuable in-kind contributions-- have been received from: PorteThekwiniBuffalo St Johns City Municipality Municipality Municipality HammanparticipatedtoTheSteering the project content Committee of team wereCapeNature, and Dr direction Steve Mrs Mitchell of Barbara this project.of theWeston WRC The of (Chair),members DWAF, Dr Msof Alan the Tandi steeringBoyd Breetzke of committeeDEAT, of the Mr KZN whoKas acknowledges the significant contribution made by the steering committee DWAF,Municipality,AdamsMrDAEA, Martin Mrof Mr NlvHvfU, AndrewGoldswain Nick Mr Scarr Willie Mather Professor of Maritzthe of theTyolomnqaEastern Rob eThekwiniof the Fincham Cape Buffalo Estuary DEAETMunicipality, of City UKZN, Management and Municipality, Professor Mr JohannBasil Forum, Stephen Masse SmutsMr AndrewProfessor of Hosking EstuaryCare,the MbizanaLucas Janine of the of NU.ResearchandTheAdministrative Philippainvaluable Commission McCosh administrative support isof gratefullythe University support acknowledged. deliveredof KwaZulu-Natal by Gail Knox-Davies, and Ms Una WiumKeny-Ann of the Jordaan Water Fincham,facilitiesHost(CEAD)The Programme isis gratefullyatparticularly the University is hostedacknowledged. appreciated. by of theKwaZulu-Natal. Centre The support for Environment, ofThe the management Director Agriculture of CEAD, support and Professor and Development supply Rob of y AbstractEstuariesresources.catchmentsand services are As valuable has toestuaries increasedsociety. economic, are In significantly,public recent social resources, years and and development ecological trade-offs resources haveat and to be made in this requires active co-operative management by around estuaries and insupplying their a range of goods the allocation of relativelygovernment,Whosingle should municipality. small residents,be (lessleading than interestLocal in 100 the government, groupsha)management they, and together thetherefore, effort? private with Ashassector. their many a key catchments, estuariesleadership roleregularlyin toSouth play Africa occurin their inare a account.Municipalitiesmanagement.The responsibilities However, in the Eastern of a localscan Cape governmentof the indicate Integrated thatas detailed in most in.instances the they are not Development Plans of Local and District Constitution, the Municipal taken into DistrictgovernmentIntegratedactivitiesStructures Municipalities that ActDevelopment have impact of significant 1998 exerton estuaries.and significantPlanning rolesthe Municipal toAll play processmanagementthese in activitiessupporting Systems of municipalities. and are Act administrative regulated of 2000 municipalities in the development and and facilitatedProvincial through andindicate the national that Local and responsibilities over habitatimplementationsedimentationThe main alteration issues of orand Integratedeffecting loss, siltation, changes estuaries Development loss in mouthof in systemthe Plans. dynamics,Eastern variability, Cape, over-exploitation and recreational the rest of South Africa, include disturbance,of salinityliving resources, valueLikecausedchanges, other and by increased a contributeecosystems, number turbidity, of to proximate estuarieshuman changed welfare. offerand ultimatenutrient a Therange measurement statusfactorsof goods, and often increasedservices ofworking this and water natural capital providestogether. an attributes that generate pollution. These are declineindicationsignificanteconomicdirect inuse, ofindirect valuebenefitsindirectthe total and touse economic thenon-usesociety. and application non-use values.value valuesof of A an thesesuit estuary. with of methodologies methods an The increase total have economicin indicate beendirect use developed to establishthat estuariesvalue confer isregularly made up causing of a theareplanningcontributeOther mechanismpoorly than and integrated,to Integrated localestuary is proposed. estuary amanagement. Developmentmechanism management These Planning, and include planning. there conservation Whileare several the planning, management water resource for developing linkages and integrating estuary values in different planning regimes tools that varietybiodiversity-basedTheagreement value of partnerships that community-owned enterprises involving at estuaries.communities, enterprises These the contribute might private be sectorcommunity-owned little to of estuaries can be further enhanced through andlor economicgovernment. development There is and the establishment enterprises or a of social welfare, and that partnerships are required to optimise existing capacity. vi An assessment of the extent to which estuary and environmental management is incorporated A(NgqushaeThekwini), intosocial IDPs and and indicatessystems politicalGreat Kei), and thatprocess processeslittle where incorporation of thereengaging are in is place. significant haslocal takenHowever government place.municipal in less capacitatedcapacity (Buffalo municipalities City and on estuary management is andinterestsThegovernmentproposed. theapproach IDP and Theprocess. canemphasises focuses optimiseapproach on theathe structured focusessimilarity benefits onthatconversation between the accrue economic the from estuarywith estuaries thevalue management full offordiversity estuaries itself and andof localplanning forand its governmenthow residents. local process positive.thatmunicipalitiesAsestuary part can ofbe functioning, thisderived engagement,and fromtested impacts estuaries. in anthree onestuary Theestuaries,areas. responsemanagement The estuary course to the managementtrainingcontains training course modulescourse and has during enterprise on been economic tested developed opportunities value, for was very

vii buildingPeople1.11. are material; attracted provide to estuaries. recreational, They residential, are aesthetically tourism pleasing; and commercialContextIntroduction opportunities; and rationale are sources of food and are forestryhomes,increasedandcentresregularly in theofmore andcentres demand development.catchments boats,agriculture, of for trade,more the serving In goods fishermenand recentmore are andthese infrastructure,convenientyears, servicesand estuaries moredevelopment that receptacles businesses, has estuaries more increased in homescoastalfor andsupply. waste indramatically. areastheand At disposal. catchments estuariesmore at and industry. In aroundWith there short, there this estuaries they isThese is are more more are an allocatingBecausedifferentand,developmental in thesome theinteractions interactions instances,goods activities and are thisbetween competeservicesoften competition competing people withestuaries each compromises and for other provide.an the estuary forsame the theThis things, are goodsvalue requiresoften decisionsofand theintense services activeestuarine have and estuariesmanagement. tobecausesystem. be made provide the on Aprivate complexHowever,key question sector. and estuaries isrequires who shouldare co-operation not be privately leading between owned;this management residents, they are government, publiceffort? resourcesThe majority interest of estuaries in so management is groups and the withinmunicipality.estuariesallSouth or their partAfrica and areaof These areanit ofis smallestuary authority.also municipalities coveringthese and Itactivities its is less catchmentthese are than responsiblewhichactivities 100 often ha.impact thatMany occursfor onallow managing of the theirentirely peopleability catchments developmental withinofto peoplerealise tobenefits realise activities from these aare local also orsmall. district So, leadHowever,management.benefits. in estuary So, it is recognisedmanagement that is inlimited. many Localinstances authorities the ability of municipalities to it makes sense that municipalities need to take a lead role in estuary are getting to grips with immediate engage and havethewaterassetsdevelopmental Eastern taken and and energy estuaries Cape, their needs, supply.management where into particularly account.Aover scan half is of notThe South Integratedthe planned implication provision Africa' norDevelopment s ofbudgetedis estuaries housingthat they for. Plansareand are Complicating located, basicnot of localregarded services indicated municipalities this such further that few in is a as municipal as roads, ManagementInresourceshistory executing of withnational Programme bothlimited control research economic it of became coastaland and directapparent socialresources support benefit. that and local aspectsa perception government of the that hadEastern estuaries Cape Estuaries a key role to play as a are ecological processThisintegrationparticipant is of the the fmal ofandmunicipality estuary leaderreport management ofin - thelocalthe projectIntegrated estuary into entitled the managementDevelopment core 'Profiling governance, Planningand Estuary that management (IDP) theManagement key process. to and indevelopment Integrated success was the thisDevelopment project were Planning the following: with a Particular Reference the Eastern Cape'. The four objectives of i ExistingManagement policiesestuary Information informationand current in IDPs practices and established. knowledge and plans are with distilled respect to to easily accessible user- the inclusion of Estuary Focused,thestakeholdersstructuredfriendly IDP and accreditedtools otherusing are that related developeda Strategicare capacity to processes. be and Adaptivetested building delivered in selectManagement programme(s) in theestuaries. selected approach Information municipalitiesfor localand are and knowledge areincorporated authoritiesinto and These objectives are addressed in theProtocols followingSection for12 way providesdetails estuary in this the anvaluation, report:responsibilities introduction land-use and of planningcontext local government, (this and section)enterprise including development established. the establishment of estuaries,andinan Section supportingIntegrated informs the 3 Objectivedetails variousDevelopmentlocal government. the planning 3 impacts Plan, and Thisof and management human addresses activities specificallytools onthat estuaries, are available, the the responsibilities of other spheres of government Objective i and Objective 2 economic value ofhow these values protocols)throughmightSectionspecifically be sustainable incorporated 4,and using Objectiveinforms two economic intoObjective case-studies, 2 andplanning Objectivedevelopment 3. and assesses management, 4 (in based the terms challenges on of andestuary economic how being resources.values valuation faced and the progress might be enhanced This addressesand enterprise improvedaddressesbeingobjectives.Section made specificallyprofile in integrating in the Objective integrated environmental i. development and planning estuary managementprocess. This 5 provides recommendations on how estuary management might addressesinto all IDPs.four This enjoy an Althoughgovernmentsurrounds it waswould context initially be thisestablished intended is recognised as thatAppendix part aas ofdetailed a thispriority 3 andproject land-use theand contentit did protocol not of occur.the compact disc addresses specifically needs to be taken up in future research for estuariesParticularly and their in a localObjective 3. projects.The report draws primarily on the followinginformationMcGwynne information and L andknowledge sources:McKenzie on estuaries M (2006). into Policiesthe IDP andand related procedures processes are for incorporating established throughandeconomicTurpielevels protocol collaboration(Appendix J, Sihlophe benefits for incorporating 1) N,of between Carterestuaries A,researchers and throughMaswime enhancing integrated and T and authoritiesestuary Hosking planning values at S local, (2006). inand planning management: a Maximisingdistrict and the provincial socio- and management. rationale PreviousManagementvanManagement(Appendix Niekerk research 2)L,in ProgrammeSouthTaljaard conducted Africa: S and Training Schonegevel under Course the auspices Manual. (Appendixof the Eastern 3) L (2006) Introductory Course to Estuarine Cape Estuaries Experiencesessions with and local interactions government of conductingand other stakeholders. estuary management support 2 and training 2. for incorporatingandare(This establishedprovincial section information levels, isthrough drawn Unpublished and collaborationfrom: knowledge McGwynne Water between on Research estuariesL and researchers McKenzie Commission into the and MIDP (2006). authoritiesReport, and related Policies K5/1485). at The processeslocal, and Responsibilitiesproceduresdistrict of Local Government development;servicesdemocratictheThe objectives Constitution to and communities toof accountablepromote localAct 108 government a of self in 1996government aand sustainable of healthy(district the Republic for environment, and localmanner; local ofcommunities; Southmunicipalities). toand promote Africa to to (the social They Constitution) and economic defines encourage the involvement of ensure the provision of are to provide a Schedules2.1communities 4B and and community 5B of the organisations Constitution in detailthe matters the mandatory of local government. responsibilitiesMandated of responsibilities local of local government below.Provincialgovernment government while Schedules depending 4A onand the 5A capacity detail those of local that government. mightMandatory be delegated municipal They by responsibilities National and - Ñational and provincial responsibilities that are summarised BuildingAir pollution regulations Schedule 4B Cemeteries,facilitiesBeaches and funeral amusement Schedule 5B AgricultureAdministrationindigenous forests of Schedule 4A can be delegated to municipalities Provincial culturalplanning Schedule 5A MunicipalMunicipalLocal tourism health planning FencesnuisancesControlCleansingparlours and ofand public fencing crematoria EnvironmentDisasterCultural mattersmanagement matters jettiesmanagementPontoons,Storrnwaterservices and piers ferries, systems MarketsLocal sports facilities andRegionalPollution development planningcontrol servicesWater and sanitation NoiseMunicipalMunicipal pollution roads abattoirs developmentUrbanTourismSoil conservation and rural TrafficdisposalRefusePublicdumps placesandremoval, and parking solid refuse waste 3 localThe Municipal government Structures (district Actand 117local of municipalities). 1998 allocates These are District municipality responsibilities between the two tiers of summarisedLocal below. municipality municipalityIDPsIntegratedPotable of all water developmentmunicipalities as asupply whole systems including planningin the area a forframework of thethe districtdistrict for PotablePreparation water of IDPsupply for systemslocal municipality (where there is wasteSolidDomesticdisposal waste disposal waste (c) disposal establishment, waterstrategy andsites: (b)sewage (a) operationregulation determination disposal and of systems control waste of a of LocalAircapacity) pollution tourism wasteMunicipalityMunicipalmunicipality disposal health inroads facilitiessites, the services district bulk for (environmentaltransfer more than facilities one health) local and BeachesStorni water Establishment,Promotionand crematoria of localconduct tourism and control of cemeteries RefuseNoiseLocalMunicipal amenitiespollution removal, parks andrefuse recreation dumps and solid waste 2.2The Municipal Systems Act 32 of 2000 details the Integrated Integrated Development Plans (1BPs) Public places Development Planning (IDP) processcouncilactsdecisionstrategic out of its(districtlocal makingdevelopment responsibilities government. inand a municipalitylocal) plan described must, to guide withinover in and Sectiona five-yeara inform prescribed 2.1 all term. period It is This is a participatory planning process aimed at establishing a above. The Act states thatplanning, each municipal budgeting, management and the mechanismafter through its electedwhich it term, adopt a themunicipality;based;integratessingle, plan; andformsinclusive and alignsis theco-ordinatescompatible andthepolicy resourcesstrategic framework withplans and plan nationaland capacity fortakesand the generaland into ofdevelopment provincial theaccount basis municipality on of proposals for the developmentdevelopment of the plans and planningwhich annualthe municipality budgets must which be links, with the implementation of requirementsvisiondevelopmentSection for long26 binding states term including on thatdevelopment, the an municipalityan IDP identification must with reflect inemphasis terms of at communities aof minimumon legislation. development an assessment excluded from basic services; a and internal transformation of existing levels of needs;managementincludingprovincialdevelopment; the development basicsectoral plans; the guidelines development aplans financial priorities and for planplanning strategieslandand including objectives use requirements; management;which a including must a spatial budget projection for at least the next three be aligned with any nationaloperational or the aims of local economic development framework strategies; disaster years; and key performance indicators and key performance targets. The IDP process must 4 takeconform place to within two principles: the framework planning of co-operative must be developmentally governance. oriented; and planning must resourcesthereforeopportunitymunicipality'sIDPs are inprovides legally a wayfor commitment bindingintegrationthat the supports statutory and betweennoto sustainable upholdsingle basis sectoral executivefor the development,the principles compilationstrategies decision of equity tomaythe achieveof Bill be andIDPs in of theconflict optimum Rights.that upliftment demonstrate with They allocation it. of offerThe poor Act the of a facilitateinThe communities.detail purpose, in appropriate McGwynne core objectives service et al. (2006and delivery key phases by providing of an Integrated the framework Development for social Plan and economic - Appendix 1). To summarise, the purpose of the IDP is to are described Thelocaleradicatingdevelopment IDPgovermnent is thea withinconsultative development and thefosters municipality. process alegacy culture ofwith of the co-operative structured past, puts intopublic practice engagement, the ideal institutionalisedof developmental Through this framework, it contributes towards governance. thatacrossoffocusesparticipation, scarce defmed sectors; on resources, those and combines and substantiveareas itis isaffectinginnovative, implementation-orientedand project links service addressestop-down proposals delivery; underlyingand are it bottom-updesigned, improvingis a strategic causes planning-budget decision service of problems, making,delivery linksand andby integrates ensuring analysis process that makes most use are made place,toThefor be feasibility; andIDP followed. whatprocess organisationaland It comprises specificallyorganisational six arrangements sequentialindicates capacity how phases:to are deliver andrequired Phase when exists. forO participation the process; by Phase stakeholders i takes - Preparation sets out the process - Analysis with- Projectsdesiredarefocuses themade vision futureoncentres on an the andassessmentstate; ondesired objectives the Phase design future of 4 the of of existingthe projectsthe municipality municipality situation; that will andPhaseand be thatimplementedhow 2 the it will necessary achieve in order linkages this to future; achieve between Phase the 3 - Integration reviews the project proposals to ensure compliance - Strategies where basic decisions Locatedincludethesectors IDP within fora exist;Spatial implementation. the Phase DevelopmentIDP 5 is - whatApproval is Framework commonly involves (SDE),areferred process showing toof aspublic a "packagedesired and municipal patterns of plans". ofratification land These of use, EnvironmentalSDFdevelopmentItdirections also is includes a guideof growth,issuesrights ato Land andaredevelopment urban cross-cutting,restrictions use edges, Management special applicableand which should development meansSystem to beeach that flexible (LEIMS)portion theyareas have whileandof recordingland toconservation-worthy thebe in addressed theLUMS themunicipality. land is in binding. IDP. ItThe use and areas. helpandaentireis Strategicalso importantresolve catchmenttake environmentalEnvironmentalthe to responsibilitynote areas that and estuaries and theAssessment for planninginshore Environmental are marineparticularly (SEA)conflicts environment. into Impact (DPLG, cross-cutting,their Assessments Spatial 2001). Municipalities Development IDPsgiven (ETAs) their must inlinkages Frameworks theoryincorporate withto are thus explicitly andlorrequired avoided. to consider environmental issues and indicate how negative impacts will be resolved Recognition of the value of estuaries and their appropriate management 5 developmentcould have significant planning. implications for some district and local The main opening for this in the JDP process is in the State municipalities and their of naturehighlightsrelatingEnvironmentState of ofto the estuarineenvironmentalEnvironment trade-offs Reporting values involved during reportingvalues, would inthe including bethe shouldAnalysis identified development includethose phase. and of includedissues aestuaries. resource in the issues It is during this process thatthat issues affect estuarine health. economics componentIt shouldwhich also elucidate the prioritization. The 2.3While it is the responsibility of local government to establish and The role of other spheres of government implement its own IDP otherare spheressummarised of government and tabulated are below.requiredGovernment act in Spheresupport of of this process. Roles and Responsibilities These responsibilities GovernmentLocal To: AdoptPrepareFacilitateProvide an an JDP supportIDP the compilation to poorly capacitated of a framework municipalities that ensures co-ordination and ProvincialGovernment To: ProvideCo-ordinatealignment generalfinancial between training IDP support guidance local municìpalities and the district municipality AssessprogrammesFacilitateMonitor IDPs the co-ordination process in the and province the alignment between district municipalities alignment of IDPs with sector department policies and National To: ProvidemunicipalContributeand budgets relevant [DPs sector infonnationin theexpertise allocation onand sector oftechnical resources department's knowledge at the local policies, to level the programmesformulation of Government EstablishProvideIssue Integratedlegislation afmancial anational Planning Developmentand assistance training policyand Implementation frameworkin supportPlanning of guidelines IDPs Management Support System BemunicipalContributeandProvide guided budgets relevant policiesby sector municipal information expertiseand strategies IDPs and inon thetechnical sector allocation department's knowledge of resources policies,to the at formulation the programmes local level of 6 3. Estuaries of the Eastern Cape and their Management planningReport,estuaryHos/dng(This andK5/1485) valuessection S management: (2006). in is planning drawnMaximising primarily and themanagement, socio-economic from: Turpie Unpublished J, benefitsSihiophe Waterof N estuaries Carter Research A,through Maswime Commission integrated T and a rationale and protocol for incorporating and enhancing yet3.1Estuaries they are arehighly acknowledged threatened becauseto be one of of the the demand most productive for coastal and development valuableThe habitats and status freshwater and conservation of Eastern Cape estuaries on earth, Estuariesdevelopment.aresupplies. in the are As unique dynamic development position systems of of thewhich being coastal support able zone to a planhas rather lagged timeously uniquely behind foradapted inland coastal biodiversity, conservation which and areas, South Africans Nevertheless,ofinestuariesvaries termsestuarine between of based its biodiversity, as physiochemical onestuarieslong changes as understanding withpresents in salinitycharacteristics. biogeographical a challenge and of other biodiversity This, for characteristics.zonation, conservationtogether is estuary imperfectwith Each planningan type imperfect estuary it and makes and size, is understandingmanagement. fairly and uniquewithin sense to Easternsystemsconcentrate Cape, as well as efforts well as their as on the themore rest maintenance conspicuousof SouthharbourHabitat Africa, of taxa. alteration constructionthe are: Thephysical main or loss problemsand through, chemical affecting for health example, estuaries of estuarine reclamation in the for development, marinas or and/orbaitSedimentationOverexploitationChange collection, marine in mouth sediments. and and wooddynamicsof siltationresources and mangrovethrough through through changing catchmentharvesting. recreational, freshwater erosion commercial inputs and inadequate and subsistence flushing fishing, of silt or artificial breaching - fishingRecreationalexample,LossChanges of system in in estuaries disturbancesalinity variability throughwith through marinas) through changes intense management in freshwater human activity to inflow maintain such or mouth constant dynamics conditions (for as boating, swimming and - PollutiontimeChangedIncreased within nutrientparticularlyturbidity estuaries. status through from through stormwatersiltation. increased and wasteinput ofwater nutrients discharge or increased water retention andattitudesultimatelyaccessibility,The ultimate above and be causes preferences tracedlackthreats of of to enforcement, biodiversityto market estuariesand human failures loss inappropriateare population and islinked illustrated policy to growth. regulationdistortions,a innumber Figure The systemsrelationshipof 3.1poverty underlying (overleaf). and and between planning,wealth, proximate and causes including consumer can controlledCurrent policy by a and plethora legislation of acts does none not of provide which adequate pertain to protection estuaries to in estuaries. particular. They 7 Their are beingmanagementfreshwaterand Forestrydevolved fallsand and to marinemainly thethe provincialDepartment environments.under two level. of government Environmental Living resources Affairs within Water quality and quantity are controlled in both departments: Department of Water Affairs and Tourism, with management estuaries are subject to the Marineguidedto ofcontrolledthe enforcement Livinghigh by Integratedtide atResources the mark. of site legislation level PlanningDevelopment Act. by Marine Environmentalaffecting has beenProtected Plans estuaries relatively at Impact Areas local is weak Assessmentswillto provide ad hoc in the past, but will in futureand be ETAs are effectivelyprovincial toothless scale. Development in is (EIAs). In general the level additional protection up the face of inappropriateUltimate causes planning. of biodiversity loss Market failures andpolicy distortions Wealth, poverty and inequity Consumer attitudesand preferences Human population dynamics Proximatebiodiversity causes loss of Pollution Climate change Overexploitation Invasion by alien spp Habitat alteration and loss Hydrological alteratìon Red ction of populati Biodiversity loss ns & genetic dIversity ecosystemsinteractionsinGuidelines mind: maintain/restore for are among a conservationmaintained; estuaries the ecologicalandstrategy and maintain/restore those have integrity between already of been theestuaries,estuaries, health developed, by their Figure3.1. Proximate and ultimate causes of biodiversity loss. of estuaries mito aensuring good to that the ecologicalwith the followingcatchments goals and other thevariabilitytheirexcellentof natural size,pristine condition,structure andcharacteristics state frequency andas assuring possible. functioning, andof naturalthat variability a representative throughphysical of estuarine sustainable processes set ofpopulations estuariesutilisation,within is This includes the maintenance of the natural magnitude, estuaries; the maintenanceandand the communities maintenanceof in ofmaintained terms the in as close to naturalother taxonomicthan by natural diversity processes, of all estuaries, and without without the introductionloss of indigenous of taxa 8 alien species. The strategy from any estuary managementconservation,creationincludes of (i) conditions andresearch development (y) andand knowledgeincentivesand water resourcethat management, support planning. conservation, (ii) regulation (iv) monitoring and enforcement, and adaptive (iii) rehabilitation. Elements of the strategy will be informed by Estuaries,3.2 like other ecosystems, offer a range of goods, services and attributesThe economic that value of South African estuaries generate relateservicesaspopularisedvalue natural to andthe are structure capitalcontribute inprocesses the which ecological-economics and to thatorganisation contributes human contribute welfare. toof economictobiodiversity. economicliterature, production. stemsEnvironmentalproduction from Goods the andperception are harvested of resources, The concept of ecosystem goods and services, or save costs, and attributes resource economics ecosystems andofvalues.Totaltypically resources. includes Economic Direct uses In both usea thetypologyValue values consumptivecase of of may anof South ecosystemvalues be generatedAfrican(fishing described comprises estuaries, andthrough bait Direct most,thecollecting) consumptive Use,if not Indirect, all,and of non-consumptive this Option and Non-Use as the Total Economic Value concept. or non-consumptive use use is recreational, (e.g.The usederivedtoestuariesboating, net values economic from birdthat include watching)formecosystem outputs inputs the activities.value functioning elsewhereinto productionof having Indirect in such the by theas economyuse other wateroption values sectors purification by to savinguse of thethe on andresources costs. (e.g. genetic) of are values generated by outputs from economy, or that contribute nursery functions. Non- These outputs are 3.2relationshipspayfarestuaries below. to less conserve tangible in betweenthe future, thesethan biodiversity the resources,and above the value values, and sometimes ofgoods non-useknowing services expressed values that andtheir are attributes biodiversityinreflected the form in society's isof protected. donations. willingness Although The are illustrated in Figure to Productivity I______Ecosystem functioning Jk!4& resilience - JSi J: and organisation Structure natural resourcese.g. Harvested t,A.LJ e.g. Flood attenuation, Water purification y" 4- e.g. Oeauty, rarity, diversity Jií1ff Direct consumptive use value Indirect value 'ir non-consumptive e.g. Recreation use value Direct ExistenceOption & value Local All society Regional to Global Figure 3.2. The relationships between biodiversity, the concept of 'ecosystem goods and services' and 'total economic value' typology of values (based on Turpie 2004c) 9 Total DirectIndirect use + values non-use values None Sensitive Heavy Industrial curves,andFigure non-use 3.3 but Hypothetical is likelyvalues. to beNote relationship roughly that thehyperbolic. betweenshape of Note the the level thattotal theof value estuaiy development curve development is dependent scale could and onthebe the magnitude relative scales Level of develoDment logarithmic of direct versus indirect of the other two mostImportantintegrity.estuaryand municipalities indirect so to doesnote and the isnon-use that- indirecthow there muchvalues andtends development (Figurenon-use to be 3.3 anvalues inverse above). is alloweddecline. relationship As the withoutThis level of direct use is the classic challenge facing between compromisingdirect use values ecological increases at an harvestingAfricanbeendifferentA suite applied of estuaries components methods in to Mngazana various still is available ofonly estuaries valueestuary in its toand over measureinfancy.is under estimated the past differentenvironmentalFor 25example,to years,be contexts worth with thevalues, some subsistenceorresearch circumstances. each R3.4 ofon millionwhich is (net suitablevalue present ofthefor mangrove value of South These have Rlvalue)thepercontribution .1 millionpropertyannum. to local perSeveral topricecommunities. annum.estuarine premiums estuaries The and Subsistenceeconomics marineassociatedmake a fisheriessubstantial value fishingwith proximityofhas inSouth been Knysna Africanestimated to estuaries,estuary estuaries to is be and just under Rl contribution to the real estate sector due to worth some RO.7 -in Knysnain this terms is of their billion Africansvisitingestimatedestimateditself isestuaries, in toestimated totalgeneral be in annual thecontributing express to order accountwillingness ofa substantial Rl tofor .4 the to about- R2paylocal billion. non-use ofRl andR93 billion national Peoplemillion value per foralso peryeareconomy. estuarineannum. spend in tourism aIn substantialbiodiversity, Knysna, amount expenditure. the estuary with an South in lo 3.3 Planning and Management Tools for Estuaries (other than IDPs) Convention,suchsomeConservation as extent the UN by planning: theConvention commitments The on protection Biodiversity, that South of estuarine AfricaAgenda has 21,biodiversity made the Ramsar to the is international Convention,already provided community, the Nairobi for to the Abidjan Convention, the World Heritage Convention, the World becomethoughminimumChange.Conservation the increasingly areasBackedformalisation toUnion beby systematic, protected.these, Policy of protected conservation framework and nowareas typically planningandof various the involvesUN sets categories. Framework the settingbottom-line Conservation targets Convention in for terms conservation, planning of defining has There is provision in legislation to mandate these plans on Climate cannotprocesses.considersofgap new analysis takesites. not placewhich The only in latterassess representation isolation step the extentinvolvesof an butunderstandingto which varyingalso maintenance targets levels of are socio-economic of already sophistication, of ecological being pressuresmet, and and and evolutionary increasingly the and selection values. In addition, it is becoming increasingly recognised that conservation planning province.initiativesandSubtropicalThere Sustainable has Ultimately, beenspecifically Thicket aDevelopment flurry conservation Ecosystem on of estuariesconservation Project. Planning planning which In planning addition, (STEP)informpertaining in conservationthereproject the to Easternhaveestuaries and also the planningCape will beenWild recently,need several Coast for to estuaries consider Conservationnationalincluding in levelthe thisthe developmentofbetweentrade-offs value,biodiversity. directsuch between among as use the valuesconservation andexport within (involving of fish estuaries and to theresidentialdevelopment thatmarine maximises environment,developments, In general the sum andthere fishing, of option these is essentially etc.) valuesand andexistence to other society. typesvalue The challenge lies in identifying the optimal spread of conservation and a trade-off willandetc.),ofWater be1998, monitoring. sourcedetermined resource and directedinvolves planning: The following controlscountry resource Water the is(to directed classificationdivided resourcecontrol measures intoimpacts planning 19 of Water eachon(defming iswater governedwater Management resources), a resourcereserve by the forAreas, demandinto National each and estuary, management theWater river, Act a class which reserve willecosystem),ofdevelopment.denotes involveprotection the consideration futurethe of Classification, lessan desired estuary water of statecan(i.e.the which be trade-offstheof allocated health greater will ofsecureinherent proportionto that water resource.a certainin using water of natural amountactivities.The allocation. system flow of Thewater thatforThe trade-off doingis higherfor reserved each this theis estuary,betweenis forlevel under the benefitTheaffectwellbeingthe economicoptimum these of water generated trade-offs, freshwater value use is by generatedequal for estuariesflow example to intothe by inmarginalestuaries bythosedifferent providing activities costmay states due be incentives defmedto ofand reductionhealth. the for economic in estuarine value quality. and people' as the flow at which the marginal Catchmentmore efficient management use of water. can s withplanningimplementinginvolvesLocal the estuarysupportare visioning, detailed actions managementof a infacilitation settingandHay then and andgoals monitoringMcKenzie agency planning: and thatobjectives, (2005).and providesProcesses auditing To carryingsummarise, co-ordination, tofor refine local out the estuarythe the managementlearning management and, where and process. This takes place necessary planning, process necessary,context, athe description required ofleadership. the estuary Planning and its surrounds,components a strategicinclude theplan, legal a spatial and institutional plan, various 11 sector plans and an implementation plan. Protocols for governance, rehabilitation and enterprise knowledge management, developmentestuary3.4 valuation, support living the implementationresource use, biodiversity of the plan. protection, Integrating estuary values into planning and management prerequisiteplanningDevelopmentsenseThe different of consideringand for istypes Planning only both of poorly developmentbothplanning does linked not are haveto alland water on aconservation. aprovision resourcetrajectory planning,to of specifically being despite environmental and socio-economic goals, although Integrated Development and water resource increasingly integrated in the link withthe conservation fact that water is a planninginformsshouldefficiency.equity, ideally embodieswhereasthe Theprocess. fit schematic conservationtogether,the goals below andof economic planninghow (Figure environmental 3.4)efficiency,does proposes not necessarily valuationecological how the (e.g. seekdifferent to types sustainabilitypertaining and social to estuaries) achieve economic of planning Municipality Spatial Land use Management Local DevelopmentFrameworkIntegrated + Planning Plans 'e eo Development Planning that can be allocatedpper limit in amountterms o of water \\that is conserved to different /rade-offsdegrees betweendeterminesvalue socio-economic\ amount of altemative of additional land land uses w o I to development Constraints o. alternative types of development/Trade-offs between value of oCDC Catchment ManagementWater Resource Plan(water Planning, allocation to different sectors and areas) landdifferent use at types a broad of developmentdetermines scale overall level of E>CD(DII)C p 0s) Water Resource Classificationenvironment and consumptive use) (water allocation between value of water in aquatic ecosystems de off between socio-economic vs alternative uses wC>o 'o Bottomareas line into termsbe protected of Constraints bottom determinesline is allocated how muchto envimnment more than theSpatially-explicit analysis of Conservatíon Planning and buffer zones opportunity costs of conservation economiccost-minimising benefits vs solution to determine This requires defining a hierarchy of constraints, with conservation Figure 3.4: The relationship between different planning regimes and estuary planning providingWater the allocation will valuation providebottomguided lineone by inthe terms maingoals of constraintsset the by constraints conservation for development on otherand development types planning. of planning. planningManagement processes. 12 plans are then Decision- managementmaking within but managementis nevertheless structures constrained is by enabled the aforementioned by the process goals of and strategic plans, andadaptive takes thatchecksbiodiversitypertinentplace is at optional to a highlytomeet valuesbiodiversity andminimum localised willcan leadonly biodiversityconservationscale. tooccur distorted All if decisions it conservationis wheredecision-making. deemed involve the economically lack requirements, making of In understanding general, trade-offs. worthwhile. any while conservation This of Ideally,there ecosystemis particularly are beyond certain we need or managementvaluablethatbetweento isdetermine set alternative out the decisionsin benefits the most optimum form conservation ofsuch ofadditional development.as level where ofplanning conservation conservationto locate At exercises. the conservation veryand for the localsociety,This opportunity scale,involveszones rather trade-offsin analysingan coststhan estuary. inthe are terms minimumthe also Valuation trade-offs of made the levelmost inis Atdecisionsfinancingnecessary least 20% thatmechanisms toof informtheare estuarmnelikely these to to achieve maximise trade-offs area within conservation the as each economicwell biogeographical as goals. to value design The of sortseffectiveestuaries area of shouldplanning includeincentive remain andthe measures following:management conserved and wouldreserve.experience,theyin aprovidebe largely enhancedThis spiritual such isnatural a highlyifas enrichment onenursery state, sidesuccessful providing areaof andthe function, research.modelestuary opportunities that asremains Where well exists as forestuariesundeveloped, inproviding maintainingmany are South opportunities developed, preferably the African valuable property estuaries,for wildernessservices values and that as a nature utilityconservationincompatible,ofcan estuaries successfully from impacting is goals derivedtheir combine whilevalue onfrom another's. cannotdevelopment multiple prohibitingbe maximised consumptive and consumptive conservationby zonation, and non-consumptive use whichneeds. altogether. preventsSince Zonationthe recreational is also value It also provides the opportunity to achieve some uses which are oftenone type of user's a far 3.5developmenteasier way of limiting consumptive use than bag or effort limits. Enhancing the value of estuaries through biodiversity-based enterprise (CBNIREs)thiswaysThe provisionhas of providinggrown which of the livelihood incentives strivedevelopment to supportreach to communities aof issymbiosis Community-Based commonly to between protect asserted natural nature toNatural be resourcesconservation, Resource in Africa. sustainableEnterprises Out of one of the most pertinent TheseCBNREsmembers,development include varyprivate theandconsiderably, sectorsize nature of operators, the tourism. withresource, the NGOS, size its sensitivityof government the enterprise to impactsand being civil and society.determined conservation by significance, These enterprises can benefit the local community many factors. nationaltheestuariesarrangementsavailability size of and wherethe ofinternational market, andinvestment this community kind level of fundsmarketing arrangementof infrastructuralcohesion. or investment agents, would Most development, ofbethepartners, thesedesirable. size are ofand poorlybeneficiaries, the levelskills developed of of connectedness theproperty atcommunity, Eastern rights Capewith A subsidycombination have implicationsof factors such for asthe institutional CBNRE in design,relation legitimacy,to economic, livelihood ecological, support, political and and 13 andsocial state sustainability. level social-political The success systems or failure directing of the change CBNRE in policies, feeds back into procedures and practices the international accountability,areforThere conservationcharacterised are three and mainand by oftendevelopment typeslack a ofoflack institutionalbusiness of support. secure model. property Community rights over owned the resource.and operated capacity, clarity on roles, responsibilities and Community- enterprises betweenprivateagreementCommunity sector wise among partnershipsoperators-use public of authors natural sector possess combine onpartnershipsresources withnature-based the the soundand community's operate economic enterprisesbusiness in a resources similardevelopmentacumen that way. and to optimise access for the to establishment of CBNREs There is overwhelming the balanceruralcapital poor. that describedenterprisesustainabilityevidencecontributes in thatmodels tothis of thethey document.these reductionthat contribute projects will demonstrate of istopoverty highly conservation invariable. success rural communalgoals. on all four areas, dimensions although Therefore, a need still remains to find The economic and ecological of sustainability there is little

14 4. Integrating Estuary Management into the IDP Process An for incorporatingareAssessment(This established section information isthrough drawn and collaborationfrom. knowledge McGwynne between on estuariesL and researchers McKenzie into the and MIDP (2006).authorities and related Policies at processeslocal, and proceduresdistrict - thatA andpreliminary inestuaries provincialmost instances and scan levels, their of estuaries the managementUnpublished IDPs were of several eitherwereWater notmunicipalities notResearch viewedmentioned Commission as municipal onat allthe or Eastern onlyReport, assets, in Cape passing. K5/1485).were Coast not This budgetedindicated meant issuesInforenvironmental order nor generally were to establish any management were mechanisms in beingmore detail issuesprofiled in placeto in what generalin forthe extent theirintegrated also estuariesmanagement.enjoyed development a specifically low profile It was planning inand also these environmental apparent IDPs. process that a authoritiesfrom(Durban)Buffalocomparative a well Cityin (Great KwaZulu-Natalresourced assessment and Kei Great andurban ofKeiNgqusha). wasthreemetropole in alsothe coastal conducted.Eastern (eThekwini) municipalities Cape. These toA four poorlyseparate took case-studies resourced place. assessment These emerging were of eThekwini Ngqusha,rural local were diverse ranging the4.1Although legally the prescribed three Eastern IDP procedureCape municipalities the priorities whose and IDPsprojects that emergedThe from Eastern the Cape Assessment were assessed generally followed process were significantlypolicyDefined different. environmental A tabular comparison below highlights the core features. Feature Ngqusliwa No Bûffalo City Yes (,reatKci No municipalmanagementEnvironmental function as a Manager.No Environmental DevelopmentIntegratedYes.SD)and Strategic Sustainablewho Environmental reports Unit Head (IEMdirectly of & to filledbeenManager.EnvironmentalNo functional createdbut incumbentPost and has Amenitiesthe Municipal Department Manager. has task.does not perform this - existingmanagementEnvironmental function added on to existingAdded poston to an DepartmentNo.management&operational IntegralSD and functions. partAmenitiescapacity. coastal of the IEM No ManagerRole of the Municipal anyexperienceappearspositionHas environmentalinfluential toand little if Dept.HeadIBMTakes andof direction the SD Amenities Unit from and the the topositionHas lobbying.anyexperience influential environmental and appears little if lobbying. 15 FeatureForumofEnvironmental IDP Representative capacity N relatedNoushwaenvironmentalcapacity. specific NGOs. No or AmenitiesBuffalolobbyUnitThe Head andCi ofthe the Head IEM of & theSD for environmental Department NoGreatrelatedNo specific environmental Keî, NGOs. capacity. or ReportingState of the(SoER) Environment couldDistrictisNo, an although Amathole inform SoER thethere that EnvironmentYes.Stateofand theState coastal of Coastal Sanitationof the Report,issues. Zone Report.State Report. anNo,informSoER Amathole although that the couldDistrictthere is coastalCurrent projects environmental or generalmunicipality issues. on None ManagementIntegratedand Integrated Environmental Plan Coastal (TEMP) ManagementEnvironmentalgeneralmunicipality issues. onStrategy Awarenessresponsibilitiesenvironmental of legal theandthatPoor. responsibility estuariescoastal IDP stated forests are of ManagementtheExcellent. TEMP andHighlighted Plan ICZMP. (ICZMP) in U»kno inRanking processissue prioritisation of environment DEAAgriculturalVotesRated 10T. 4.54%.number 10 of priority areas. votes,RankedSpatialareas. 3and infrastructure Awarded 12% of of 5 priority votes.priorityNotInfrastructure listed issue. as a No managementEnvironmentalmunicipalMost important issue projects in (15.5%ofvotes)development None Development(50% of votes) of an TEMPICZMP EnvironmentalStrategy1)development (ranked for Great AwarenessenvironmentalBudget allocated of value goodsprojects toof and Poorfrom - deduced the absence of None Rl .2m over 3 years KeithePoor absence - deduced of the from Rl 00 000 servicesExtraordinary funding to theareasthe environment list of priority in None supportedSignificant the funding. development SIDA Good priorityenvironment listing in None aware,municipalitiesComparisonsupport 3=least 1])F between aware)(1most 3 of the TEMP and TCZMP 1 2 ThelocalisedAvailabilityinto inclusion municipal environmental of of environmentallyIDPs guideline is related guidelines, documents: to related a complex these issues Although areinteraction (and strategic bythe extension IDPbetween and Guide estuary need to be translated into area-several factors: Pack (2001) does provide management issues) forguidelinesspecific consultants actionsleaves that municipalities that often can support be implemented individuallythem in the byIDPresponsible local process. municipalities. for drafting 16 Insufficient knowledge can lead to The absence of specificthe terms of reference thereinadequate environmental criteria to guide planning and developmentis a activities. need to developConsequently national guidelines that clearly outline the environmental severalmunicipalitiesAgenda(CSIRrequirements environmental 212004). principles toof The investigatean IDPpathway researchand and activities provideanddescribed initiatives consider minimum into by specificcurrentlyUrquhartthe standardsIDP environmental processunderwayand thatAtkinson needis thata goodto issues.(2002) can be met startingfeed Thereto for integrateinto IDP point the approval IDP Localfor are also outlinebiodiversity;shouldneededprocess of include onby local howassisting principles initiativesthe to incorporatefollowing: municipalities of and coastal data legal these to management, requirementstosupport priorities identify these intotheir conservationprocessesfor IDPs conservationprotecting and (C even SIR planning key priorities.2004).SDFs. coastal and Useful ecosystems LAGuidelines 21;guidelines and and are an prominentlymanagementprioritieslevelAbsence of and commitment of in directionintentionsa andefined IDP since and environmentalofto anaddress action. environmental organisation Itthese reflects policy: issues. in issues broadan An awarenessEnvironmental environmentalcut terms across and of all actsenvironmental municipal policy presentsshould sectors issues be the and showcased approach,and policy the as the framework to guide managementlikelyalthoughmunicipalitiesprovides to followthethat iscore of inbound fromBCM theguiding Amatholetoan was be awareness statement.reactionary in progress district, of At andlegal (Alan none the ad obligations time hoc,Carter,had ifofyet it writing pers.occursformulated and comm.). inatthis all.its report, absence, Policy of developmenttheenvironmental five coastal is an environmental policy EnvironmentalwithoutmotivatedMunicipal a post Environmentalenvironmental (orManager even a would shared Manager management precede post) (EM) dedicated that capacity: would of Coastal toplay environmentalMost aManager). central Eastern role ACape management inwell raising municipalities capacitated the @ost profile and of of are portfolio,Rolesuccessfulenvironmental of an achieving Environmental inclusion (and municipal of coastal) priority Manager: support issuesenvironmental Whetherinfor the environmental IDP projects a processfull orinto sharedinitiatives and the IDP.his Environmental will depend toManager energy is critical for the a large potentialareToformallyextent furtherincluded onimpact delegated),the support in awareness of the municipal environmentalIDP the Representativethe economic activities Manager initiatives, andvalue creates Forum those of theof environmentalduringof legal EMcivil shouldresponsibilities thesociety process ensure ongoods these of thatIDP and(once goods key development. services, these interestand services.have and been The the groups responsibilitiesAwarenessenvironmentalcommitment of and legalprojects.from energy national of the agencies, EM is vital municipalities for the success are of unsure budget of allocations their legal to coastal priority responsibilities: With no formal delegation of environmental offundamentalmunicipality.departments,management measures requirementto such duties. Clearprotect as delegationDEAT Theynatural to impress are and ecosystems, confused ofDWAF, onresponsibility municipal provincial aboutincluding decision the through estuaries,authoritiesrelative makers a co-operativeresponsibilities is andthat not inclusionthe role of into of the national the district I[DP an optional extra but process is a i.e.mandatory. Municipal This Manager, awareness Mayor, needs Municipal to be promoted Council, among IDP Steering all role playersCommittee, in the Cluster IDP teams 17 process cross-sectoraland Representative approach Forum. to dealing Legal withobligations environmental also present concerns. the imperatives for encouraging a AmatholeAwarenessdegradationsystemsfunctionality andmunicipalities of ofthe of these monetarylinkmanagement systems. between indicates cost Municipal environmentalandinstitutions: a costlack todecisIonof the awareness The qualityhealth, lowmakers priorityof socio-economicof human needthe economic toof bethe made aware of life of slow but systematic environment in most weliness andvalue the of natural the need systemswayuponcriticalto protect natural decision function to the local systems goods makers. ofcommunities. municipalities and are They servicesmanaged should The natural as which pivotaleffective systems in turnrole management ofprovide municipalities to institutions needs to understand how their style and efficiency determines the affects the socio-economic benefits of these the communities they serve. The should be emphasised to be impressed decision-making.politicalissuesCommunication roleinto playersmunicipal between especially planning municipal councilors processes, sectors: and there the To Mayorshould mainstream whobe good are biodiversity often involved and in communication between all conservation strategic understandingenvironmentalshouldkeymunicipal principles also sectors. extend needs health,and Development processes broad to waste other training management used sectors planners that in each focuses such and other's as conservationlocalon water cross-sectoral fields economic services (CSIR planners development. relationships. 2004). need to development, sanitation, This understanding Achievingunderstand real the EastInclusion(e.g. London Wildlife of environmentalMuseum, and Environment Estuary special Management Society interest of groups: SouthernForums, Special andAfrica, various environmental Marine Friends Working Group environmentalof the issues. groups) playinterest an groups InfluenceopportunitymunicipalTheimportant IDP Representative part Environmental ofto participatethein highlighting Municipal Forumin Manager the specific IDPManager is the processshould platformneeds and andensure and IDPforthey raising thatthese Steeringshould interest thegroups be profile encouragedCommittee: groups to engage of are to the process.informed The ofdo theso. In Ngqushwa Municipality,research.meetings,process.members The including Theconsiders for Committee example,Mayor the and chairs Mirvl)the comments sets Municipal the havethe Forum terms centralon Manager input meetingsof roles from (Mlvi) to andsub-committeesplay and isin IDPalso guiding Steering a member and Committee reference for the IDP Representative Forum and can recommend managing the IDP of the Steering (seven environmentalmunicipality,theCommittee.can IDP result process. Thefrom it obligations isMN'! insensitive criticalFor and environmental Committeethatand human the threatsMlvi activities. are (coastal/estuary)and thusto environmentalcommittee in strong positions are issueshealth informed to andto influence be oneconomic the addressed by the the outcomemunicipality's of growth that municipalityandIDPSupplementary anprocess Integrated andis wellfunding: to Coastal implement ahead BCM ofZone its hasan peersManagement Integrated recently in terms received Environmental Plan.of natural significantIt is thereforeresource Management donor management not funding surprising to support Plan and System (it was the that this its municipalitiesonly municipality will thatneed received adequate fmancial funding. support). Efforts to improve the 18 capacity of lesser withhavepostsectorDistrict ofan Environmental importantplanning. municipality District role to Managerleadership: playmunicipalities in ensuringlook Local to are the thatmunicipalities in district many core sectorcases municipality ahead thatplans either of districtfortheir have guidance local or counterparts in terms ofand plans. District environmental management strategies are developed and aligned (e.g. are without the Integrated betweenandmunicipalitiesDistrictEnvironmental vertical municipal alignment). and and between tiers,Coastal DIMAFO which nationalManagement further (District environmental emphasises Plans) Mayoral can regulatorythe Forum)in importance effect has bodieslead oflocal (i.e.the planning EMpromote in ensuring initiatives.horizontal thatmunicipalities should also co-ordinate policy and strategies between local a co-ordination role to play Rolemanpowerlocalthe ofMayor municipal provincial and is capacity informed activities. and national restrict about thegovernment: environmental involvement Most of issues. theAmathole district In the municipalitiesEnvironmental Amathole district, for Manager example limited in governmentmunicipalityconcerns,tiersare ofpoorly government. there informedto to clarify isidentify confusion Althoughabout their its the respective role, about divisionthere responsibility legalis ofobligations.generally environmental mandates. aalso willingnessThere Although lies responsibilities appearswith to provincialthe address to onus be between a isenvironmentalserious andon the thenational lackdifferent local of areMentorship:maintaincommunication busy implementingoptimum Well-capacitated between levels key of levels naturalenvironmental and of resourcerelatively government, projectsuse. well-funded which should municipalities,is actively hampering support effortssuch less capacitatedto find and as BCM, that positionmanagementmunicipalitiesencouragingidentified to support and isbest throughto co-coordinated practice.be 'lesser' effective a constructivelymunicipalities in along optimising the and coastline. resourcetake a leadMunicipalities use, position common in such settinginitiatives the trendsshould and be designed mentorship programme. If coastal as BCM are in a thecoastalidentify exceptionState resources,ofand the prioritiseof EnvironmentBCM) and issues havethe level littleof Reports: concern. of understanding local Knowledge Coastalcommunity municipalities of ofthe dependence the state state and in of theeconomic coastal Amathole value district of their (with on these resources (Arcus resources can help thatmunicipalitiesactionreportGibb describes 2005b). thatto protect will coastal BCM areinform the dependentissues is health itsthe Integratedfrom only of on acoastal municipality districtthe Coastal Amathole ecosystems, perspective. Zone that State Managementhas particularly of produced the Environment Plan a estuaries. State (ICZMP) of report the Other andCoastal (CES Amatholewill 2003)directZone JudgingplaysresearchPoliticalspheres itself teamfactionalism: fromof out government. isin the political provincial content Widely factionalism and of reportedthelocal IDPs arenas that in of existsvarious and Great compromises within mediaKei the and and ANC Ngqushwathe encountered overallin the Eastern functioning municipalities, directly Cape. ofby This both the development,environmental and issues manufacturing. are largely overlooked This is the in case favour for almostof infrastructure, all the eight skills local and municipalities agricultural 19 in the Amathole District of the Eastern Cape (Arcus Gibb 2005 a, 2005b). The only exceptions andare2005(CES BCM,resulted (Arcus2005), where in Gibbandthe environmental developmentADM, 2005a, which 2005b). management ofis integratedcurrentlyThe general implementing wasenvironmental neglect of environmental its and EMP/S relatively high on its IDP agenda in 2004 policy to guide the approach to coastal management plansand ICZMP finalised in issues has meant that EasterncurrentlyenvironmentalnotThere a single are Cape. being many municipality prepared).managementThe reasons root forhascauses poor yetand developed aremunicipallay complexthe foundation anenvironmental environmentaland relate for management in management part to the absence of formalactivities (BCM'sperformance is in the delegationwithinresponsibilities,manpowersituation their of whereby responsibility tomunicipal exercise they municipalities do structures. the notfrom supportfunctions. national areA co-operativethe not government. Increation delegated turn, ofgovernance responsibilitiesanThis Environmental could agreement be because they have not been delegated equatedbecause to a "catch-22"they have no Manager (EM) postbetween national, absencenecessaryprovincialOnce a municipality of wouldandmunicipal local be agovernment hascapacity.positive created step andthat towards adequatelyincluded fmancial filled either and capacity a full or addressing the confusion over obligations, and the building supportshared where EM post, there VigorouswilltheHoweverenvironmental be threats a champion and without facing sustained concerns to estuariesspecific drive campaigning the training intoand process inthe particularinwill planning of coastal raisedeveloping thethosemanagement processes profile posedan environmental of byof environmentalthe the EM various is municipal activities themselves. unlikely to be awarepolicy ofand integrating municipal sectors.issues in general. postsmovementheldEMTraining whoseoccasional are onfilled, of rolea municipalcontinuous stabilisedtrainingwill encompass workshopsstaff basisand thesereflect is aessential broad workshopsfor adequate local environmental to municipalitiesmaintain capacity. need to the portfolio. motivation in the and be repeated at least annually until EM region but with the Nationalconstant government has coastal focus of the units2005a,intentions,If municipalities about 2005b). they 50km Withshould arelong, tothe not itplay Eastern makes be a left pivotal little Capeto operate sense rolecoastline in infor achieving isolation, each divided municipality asgovernment'into currently to focus s municipal zones incorporating is the case (Arcus Gibb coastal management solely on its own Upliftingrelativelygovernance,requiresones to andshortco-ordinate commitment guiding a stretchcornerstone these ofmanagement coast.from under-equipped of national allBetter tiers efforts, equippedenvironmental of government.municipalities municipalities This is however ismust the co-operateessencea joint share experiences and promote best practice. and coastal management policy. undertakingof co-operative that with 'lesser' 20 The4.2 Focus Areas, Key Strategic Programmes and Key Performance The eThekwini Assessment areas of the eThekwini managementMunicipalityFocus Areas is areincorporated. tabulated below including highlighting and ProgrammesKey Strategic Key Performance Areas notes on where estuary jobdevelopmentEconomic creation asid Newexisting& businesssupporting busmess mvestment & growing 3.2.1. PrimaryManufacturingTourism sectorsector support sectorsupport support : 6.5. MarketsAdministrative services Managing public realm 4. AffirmativeI . Informal procurementeconomy programme : 98.'- MarketingLocalSpatial business Economy & Branding support centres tavironmeutsQuality lwing communityMeetingbasic needs & malritainmgmaintainingservice needs1 2 HousingI1 SupplyCouncil with ofcommumty housing sen ices stock delivery facilities & j 243 ServiceInfrastructureOperation backlogs1 & maintenance Maintenance2 securitySafely and InformationDisasterCitizen safety Managt.ment safety & 2.services ProtocolIi .Disastu Road for& Ri.cuvtxy'pedestrian Municipal safety information : 2.3. CrimeCleaning prevention & greening citizensempoweredHealthy & HealthyWellsecurity being employees of citizens TB,2.dissemination Communicable1. H[V OccupationalPrimary & AIDS health diseases health care & including safety 3. Environmental3.5.4. HRIndigenceVulnerable Policies Programme groupsHealth5 SustainingculturalEmbracing thediversity DevelopmentBridging the skills and gap 2. ArtsII.2. EmployeeSDF/SDP6 SportHJV/AIDS & Culture skills Programme development l. 4 EMA4.3.2. MuseumsPreservingCommunity en ironmental our action Heritage services support environmentnatural and built SDPmaintenance of SDP & 3.2 CoastalTransport development& planning management7 V management plan6- Infrastructure plan9 democratisationLocal government govemanceAccessibilityPollution Minimisation & 3.2. CustomerE-GovemanceI.I PollutionCommunication services Control" centres & marketing (CSC) 5.4.6. LUMNEPADNational System1° & provincial interface LearningAccountabilitymunicipalityEfficient organisation & effective 2. BathoE-Govemment1. AuditMunicipalOmbudsperson Pele - People court First 6.5.3. WorkiflowTheKnowledge city as engineeringthe management centre of learning andFinancial sustainability viability Strategic budgeting Expenditure4. Performancei.3. sustainingAnnual Framework report Managementthe Medium TermSystem i 2.7. StrategicArea8. Sister based budgetingCity management programmes alignment to IDP ExpenditureIncreasing revenue 2. Value1.I. SeekCost for alternatesaving money measures sources of funding . 3.2. TighteningGrowing revenue credit controlstreams 2 MaintenanceManyAs sewerage estuaries and in wastewatereThekwiniwaterneeds provideareand relating regularly wastewater. recreational to disposedsanitation. services of in estuaries,to the community. estuaries play an important role in meeting basic human of storm water and sanitation infrastructure has an important impact on estuaries that act as receivers of storm 6 TheEstuaries SpatialEstuariesPollutionCoastal development relatedare used disasters for and water-basedentire managementhave municipality the recreationpotential activities including to and have include water estuaries. a high qualityestuaries. impact needs on estuaries.to meet standards for human health. Development Framework and the Spatial Development Plans are strategic planning instruments that cover the 'IO The Land StormWater water pollutionand sanitation has the infrastructure potential to oftenhave adirect significant the disposal impact of on wastewater estuaries. into estuaries and theirare an importantUse Management component of System the Environmental will provide Servicesa detailed Management tool for the planning Plan. of development in and around estuaries. 21 catchments. particularOther than estuaries. highlighting However the presence a number of estuaries, of strategic the IDPfocus does areas not link make directly specific to estuary mention of willmanagement.coastaldevelopmentindicated identify management that various The guidelinesthis next version strategic plans; iteration for will manage projectscoastal have of the moreand zonefor IDP projectimplementation. explicitchanges; is to the be reference coastreleasedthe development as Projects toa soon. environmentalestuary likely andmanagement to implementation be and tourist asset; Breetzke (pers. comm.) included are issues and of naturalplansimplementEstuary (to areas; management be a includedsustainable and coastal is in considered coastalthewater relevant quality livelihood implicitly coastal management. programme; and management explicitly development in plans); many considerationof of the estuary "package management of coastalof plans" issuesareofSpatial the organised eThekwinioriginate Development in upstream termsMunicipality: Plans of fromcatchments. (SDPs): the estuary Most This itself.significantly Development SDPs planningof various on areas a catchment in is significant because many estuary management eThekwini basis usemunicipalityprovidesLand and Use controlsa significantManagement including on these opportunity land Systems land adjacent uses. for (LUMS): improvedTheto estuaries. existing The estuary landThe management. schemeuse scheme will outlinewill permissible scheme has often included inappropriate apply to the entire land coastalofeThekwiniin morefmalising and appropriate estuary Coastal an eThekwini zoning. controls.Management Breetzke Coastal Strategy (pers. Management comm.) (CMS): indicated Strategy eThekwini that (CMS) Municipalitya revision for adoption is is in likely to result by Council.the process multi-disciplinaryvaluableandThe CMShas the asset' 'presents overarching (eThekwini, organised the proposed aim approach2005). of management 'protecting, In toparticular ensure frameworkoptimising that it 'sets the coastaloutfor and theto enhancing bezonemunicipality's a systematic, is managed, this protected coastal zone'unique andintegrated,2005). All managementEstuaryandecologicalof enhancedthe strategicManagement health, whileplans objectives social fortheir Plans: each and rolelink As ofeconomic in directlypart the biodiversity of estuaries theto opportunities estuary CMS conservationand themanagement. therebyintention are optimised' workand is 'to optimising develop (eThekwini, and their towards ensuring their implement value as monitoringrecreationalofdevelopmentspecific ecological environmental the nodes.' health reserves; potential The of thedraft andcommitment and estuary socialstrategy landscape (thisissues, highlightsto musta values.continualrecreation, include that The improvementeach faunacatchment plans plan and must should flora and of include stormwater indicators);incoming take into mechanisms accountwater management, area calculation quality; for managementinitiativeEnvironmentalconservationemergency sets plan. response plan;out Policy the and mechanisms;Environmental Initiative:clear accountability this breaching Management was first and policy; developedresponsibility Policy for in the1998. for Municipality implementation The new development of built form plan; draft policy(eThekwini of the protectiondevelopmentMunicipality, and and2004b). management. growth The and policy' Theto optimise s policy central is itsmessage intended benefits, is tothat the support themunicipality environment the implementation should is a coreinvest asset for 22 of thein its management.eThekwini IDP However and has Goal also Econtributed includes an to objective its content. that All specifically six goals relatefocuses directly on the tocoast estuary i.e.: EnvironmentalframeworkMunicipal'To optimise Area'.for Servicesthe the Municipality. benefits Management derived In terms from Plan: of the the This plan unique is 63 the 000ha coastal approved have resources been open defined space-planning of the eThekwini as important budgetFinancialterms2003).open of wasspace theEstuaries Plan: overEnvironmental areas eThekwini RiOb and that parts(R2.2b provide MunicipalityServices of ontheir significant capital Managementcatchment has expenditure aenvironmental substantial are Plan. included and budget. R8.5b ingoods the In and the services2004-2005 (eThekwini, the total open space areason defmedoperating in expenditure) althoughmanagement.takeactivitiesabove,(eThekwini place many that a thatwide impact Municipality,municipalFor are varietyinstance onnot estuaries). componentsfocussed ofthe2004a). estuary drafting In onEstuaries addition are managementestuaries of involved the arethere SDF significant in are inisparticular activities notestuarynumerous focused municipal management but aremanagement on dealt estuaryassets within and,activities activitiesmanagement in these (and that are related to estuary as discussed Theframeworks.otheractivities, IDP plans, (and is Asthepoliciesnot aassociatedpossible result and ofstrategies.to Longtheseestimate Term factors This the Development budgetis and demonstrated the allocated diffuse Framework) specificallyby nature the degree oftakes estuaryto to estuaryprecedence which management management. related plans, over all plansManagerpoliciesis to are oversee and whobuilt. strategies stated the entire that highlight functioning'the city's this IDPalignment. of isthe the municipality. foundationThe legislated onThis whichintention is underlined our of strategies the eThekwiniby the and Municipal action IIDP .. The IDP contains eight plans and everything we do must fit into those Theforactivitiesplans'. the IDP municipalityFrom includesneed an to estuarybe 'Sustaining andaligned contribute management with the the Naturalto IDP.its perspective strategic In and particular Built development this Environment' they means must programmes. that conform any plans, to the projectsbroad vision and as one of eight strategic Theemphasissustainability.development IDP approach on sustainable Asprogrammes is significant resulting development. inenvironmentaland integration across resources disciplines estuaries should benefit from the strong illustrates the significance as demonstrated byplaced the cross on environmental intendedEstuarywithincludedsection issues Management toof overin cutissues planning acrossand covered above Plansdisciplines efforts land in in the thetouse. IDPandcover draft In andintegrateaddition coastala multiplicitythe fact a variousstrategy variety that theof issues. ofindicate issues. SDFsmunicipal It (andProposalsshouldthat components lowerthese also plansforlevel be Coastal noted plans) that anddeal are being are also approachthepositiveactivitiescomponents many development willdifferentare of inter-linkedalso the municipalityresulttypes in viewinof (Mather, aactivities more of regularly the integrated pers.fact that that consult impactcomm.). successfulunderstanding withthese From other systems. management an components ofestuaries the An value integrated depends perspective ifof they estuaries management believe this and theiris the on managing a promoterange ofwiser human estuary (municipal) decision-making. activities that can impact the health of these systems. This will 23 unnaturallyBoonin the (pers. Northern highcomm.) frequency Area, highlighted the oversupplyof breaching that during of events wastewater interdisciplinary in the inestuary. the As a Ohlanga catchment resulteddiscussions in an regarding planning result of concerns about theandmunicipalityThe possible Boon,Municipality pers. impact is spendingcomm.). has on adoptedbiodiversity, R25 million a catchment to divert planning sewerage approach inflows to other visual attractiveness and recreational illustrated by the use of catcbments (Mather use, the implicationsdownstream.estuarydevelopmentcatchments management ofas fromUsing catchmenta unit an a of is estuarycatchment theplanning activities impact management forapproachon that thethe activitiesestuary Spatial perspective.to planning and Development in lead Anothertowill effective assist Plans. management. the catcbment have on the estuary significant challenge toin understanding the This is a positive Epstein balanceandcatehmentexample,(pers. estuary thecomm.) type competingto within receive andindicated theextent stormwater demandsOhlanga thatof development this catchment. haverunoff approach been and to placed wastewateravoidhas been potentially on usedthe effluent. limited in negativethe In capacityresponse impacts on Northern SDF where, for it is necessaryof the Ohlanga to the river management'PackageThecovered'package municipality ofin of Plans'other plan plans.' plans,for hasframework. EMPs a opted particular such will asto livingIt includeprovide areais intended resource that Estuaryan will opportunity that exploitation serve Management these as thetoplans andinclude willrecreational in use local area plan in terms of the Plans (EMPs) within the theform package part of issuesa coastal not management.

24 5. Profiling Estuary Management in Integrated Development The5.1 assessments described in Section 4 and direct engagement with municipalitiesHow?Planning in the haveresourcesimpactsandhomecourse solved are message.of (Buffaloengaging of supportingtheir this problems. urbanCity Thosethe estuarymanagementand development municipalities eThekwini)Some management areas process haveonof that theseestuaries efforts inintegrated area municipalities structured wellin arethe estuary established, significant.Eastern management Cape andBut, provide have they into onecapacity havetheir clear JDPs takeand way. That is not to say that they are highly urbanised and the or are thosecapacitatedTheestablishing poorlysimple lessonresourcedprocessesone can to deallearn to areas deal with from with the this thelimitedissues. is various that Howeverifcapacity. one issues. is well this Local established,lesson government is not well readily resourcedin South transferable Africa,and well to managementparticularlyservices,arelimited effectively capacity and those is comprise entirelyonly tocoastal govern six new.years municipalitiesstaff and What old,and manage have councilorscapacity a andin limited the this and forEastern is revenueresources whomunlikely Cape streamthe toexist, thatexperiencechange from focus in rates, theon of theshortlevies, delivery term. taxes Many ofand are rural in nature have governance and leftsupportcompromisinginstitutionalisedessential to their these own services. under-resourceddevices. delivery. corruption, It is alsoProvincial self-enrichment commonmunicipalities. and knowledgenational and Many political government are that out factionalism in their many also struggling haveof these limited on municipalities their capacity own and to are key driving forces willExpectingmandatedmanagement alienate municipal theresponsibilities veryis entirely people staff unreasonable. one isand unlikely is councilors trying to to haveWaving influence. to the jump desiredthe atstick the effect, ofchance legislative probably of engaging requirements the opposite estuary and as it municipalWithengagementimportant this as processes, factorcontext that toneeds bow recognise specifically doesto be onesupported is that ensureIntegrated at the bythat starttechnical Developmentestuary that thismanagementexpertise. is aPlanning? social It is andnottaken The politicala technical intofirst account and process most in process of Whatentirelyofficials,imposed is foreignthe onlocal focus political to stakeholders theirof this andframe engagement? social of reference. systems. The Also, clue at is the provided start in Section 2 which emphasises - and asking them to buy into something that initially might be one is engaging people - councilors, impactsonepoliticiansimperativethat ismunicipalities to of engage human- tothe use currency at activity areathe common developmentally start of on development, focusingits currencyecology on orientated.and technical thatof technicaleconomic is well aspectsThey aspects understoodvalue of and ofthe managing ofecology byeconomic municipal theseof an opportunity. impactsestuary, staff and the If are economically focused. So, it is one conversationis likely to lose which one's emphasises audience the immediately economic value and of bean estuary,given short and how thrift. a municipality Engaging in and 25 a likelyits residents to be well might received benefit and from well the understood. goods, services and attributes that the estuary supplies is itismunicipalityneedsHowever, impactswell toknown be onit is andoncoastal suggesting not tangible its enough residents. fishing to economic to a is municipalityfocusWhile not meaningful on the development the economic thateconomic itif might the contribution opportunities benefitsbenefits regulate of that offishing an estuaries mightimprovedthat in will anaccrue. to estuary accruecoastal to coastal fishery The focus becausefishing the tourism,on,doWho notfor should accrueexample, recreational this at theincreasedconversation municipal and commercial rates belevel. revenues with? Adevelopment moreIt anddoes useful not help way to to engage initiate the a conversation environmental manager job creation from estuary-orientated residential, is to focus functionsinvolvingTheyexists).of the cutmunicipality As -acrosscouncilors, hasfmancial, been all only explainedfunctions economic managers or whoever estuaries in development,and a municipality. supportis mandated are keyagencies infrastructure economic, to It carry needs across out socialtodevelopment thethis be full functionaand structure spectrum ecological conversation of resources. and maintenance,(if such a person municipal decisionitplanning, isOnly not whenideal making amenities, toa municipalityconverse social with welfare, recognises people environmental individually. that estuaries Thisprotection are is of a collectiveeconomic and disaster processvalue management. and have of learning and embraced Also, theHowever,continueelements need for to oftheir evenrealise management management when the benefits the concept- how can on aitto sustainableeffectivelyof maintain an estuary thebasis.move asecological anon economicallyto engage functioning the valuable of the resource system to social and technical is Developmentthatsignificantembracedcooperatively a municipality attention.the Planning next managing understands. Againhurdle process. thisan - that estuaryis In aWhat ofconversationessence governance, and currency athe municipality fundamentalwhich is this?management needs It areis toframeworks the thetake currency andsame, place planning asforusing of are governing the theplanning - currency Integrated requires andand functionaries,beandgovernanceimplementing an transparency organisation apply variouscivil in equally: to societydecision manage. actions. public stakeholders making. In bothaccountability, Co-operative instances and supporting it effective comprises management institutions. political is the leadership, same.There Thereneeds managers, to Both are public resources and so the principles of good participation, and consistency of needs to be a adjustsadaptivestructuredCapeopportunities where(Rogers management experiencefor and learning Biggs process. 1999).throughand Inknowledge Theboth experience, approachinstances are appropriateis limited.it purposeful,is based Furthermore, onfor explicit,a local process authorities promotes thatit sets is strategic in action,to changes in economic, social and ecological conditions. It also providesdirection for the Eastern andand refmingrealiseobjectivesthemanagement same the them - aimedgoalsachieving and to andatensure achievingthe objectives,a samecollective they time thehave monitoringvision, allowsvision the desired planningflexibility.amongst the effect.impact andall The stakeholders,implementing In ofspecific both these instances managementactions; establishing tangible andthe actions managementadaptingprocesses are goals and which and process needs to be strategic - forward thinking to 26 predict the consequences of various actions. In short, the overall goal is to reassure a municipality that estuary management is accountableembeddedOfbusiness critical as in usualimportancein terms the only [DP.of hisat isa Ifor different thatit her is everyperformanceit is scale. likely project to assessment orbe action resourced, carriedand it that is out likely a atstaff anto receiveestuarymember political is will firmly be plansoftheexplicitsupport. and packageetc.) adding partandIn practical ofthat value plansthe every goalsto terms(SDFs, the project and IDP. this LUMs,objectives or means action coastal that atof antheestuaries and estuary IDP, environmental that and needs estuarycoastal to be management management managementsigned off as plans, beneedan includedinitiative toprecinct be an in understandexpertsfunctions?needOnce for a municipality outactive isYes, ofthe managementevery but consequences having has municipal embraced stated is it importantof politicianthat thevarious there concept that is oractions not manager.theof anthe municipality expectationfor economic theWhat functioning understandsthe valuethat municipality one of anis of creating estuaryhow an estuary. an needs andestuary the to atrequiredwaterUnderstanding, catchmentthe estuary.flow to it quantif'will will Afor increasebroad example,affect the understanding environmental thesiltation that functioning if anda causeway thisprovides impact. ofwill the is impact built aOr,system basis thatacross on for benefitsandagricultural predictingan that estuary accruing specialist andthedevelopment consequencesimpedesto knowledgeothers or operating in alters the ofis moredevelopereffectivelyspecialistactivities forceful expertisewhyon tothan the (or he simply flowordeflect) is she required. of saycan't economicquestions that build Mosthe ora residentialraisedbenefits sheimportantly can't. by and residents housing itit allowsalso estate and a basisa othermunicipal on anfor stakeholders. estuary understanding official floodplain to Telling respond when is far a Inmunicipalities5.2 engaging local face. government Many are itbeyond is apparent the scope that ofone reference cannot addressof thoseEngaging allsupporting the problems local estuary government - A Learning Tool. managementwastestedstakeholdersmanagement to an use introductory it capacity,as activities. and a point support educational and Focusof toengagement;agencies getis courserequired. municipalities with on Withestuarytoestuaries familiarise this thinkingmanagement. in and mind their municipal about the management; researchThe how purpose staff, they team mightof todeveloped this build profilecourse local and civil society rangeeThekwiniTheestuaries process in terms in(Durban), that their capacity, was IDPs. followedPort resources St Johns was firstlyand Buffalourbanlrural to select City three mix. (East diverse London). municipalities. They provided These a broad were Each municipality was engaged Buffalothroughdevelopedassistmunicipality Cityinan increasing appropriate andthese faced presented comprised with knowledge municipal respect in workingone-day to to estuariesrepresentative address sessionsworkshops management theto the andchallenges. to three determinePort and municipalities.St whatJohns Course the a it coursechallenges took modules In placemight eThekwini werethatover include the 1.5then and to to days.the course. At the conclusion of each workshop an evaluation was conducted to gauge the response 27 trainingThissequence educational course of delivery manual, tool is are: described a guide toin trainersdetailThe inEstuaries andseparate a series of publications. South of modules. Africa: In summary ConservingThe and Managing our Coastal Assets - modules in rough it comprises a this is a photographsmunicipalityEstuariesSouthPowerPoint-based Africa, of the the where various benefitsXXX slide the estuariesMunicipalityshow thattraining accrue that in exposescourse the from -municipality a theirpresentation participants and the and challenges designedtoany the other range of importantspecifically management of estuary types is being delivered. It illustrates through information for the in thatresourcesThetothis isparticipants. presentationValueavailable with of Estuaries (conservationillustrative is to give - a examples thepresentation status, course ofenvironmental a these richfocusing localvalues oncontext health why estuariesand etc.). so Themake are overall itvaluable more purpose meaningful economic of EngagingimpactsActivitiesandHow functioning does managers estuarythreateningan estuary of management willestuary work?estuaries encounter. systems - a -presentation a presentation providing providingoutlining a simplethea simple estuary overview overview management process of the structure of the type of particularEconomicemphasizingopportunitiesmanagement enterprises development its existed that alignment existand these people. atat estuarieswere estuaries,with highlighted. the - IDPand this what process.presentation business Where outlinedmodels examples might the various ofbe appropriate forlocal estuary economic with;workingmoduleswereThe presentations suppliedidentifying sessions3 - 7 tothe each involvedweretheparticipants keyparticipant kept goods,identifying short, divided as servicessimply part an into of estuaryhighlighting and groups attributes in andtheir the engaged municipality keythat points.conferred in working Copies that value; the workshop pack. Following the presentation of they were familiar sessions.of modules These 3-7 relating the thatfunctioning;ecologicalEach might participant befunctioning deciding pursued that athow attendedto the the to estuary. goodsmanage the courseservices these received impacts, and attributes; a andcertificate identifying identifying of participation. economic impacts opportunitiesthat affected -theThe course overall and process receiving of engaging feedback the from municipalities,Learning participants on the developinghighlighted part of the the researchersthe course following: and the participants happened through engagement. material, presenting - whichTheaboutOf particular courseto issues operate. material rathervalue wasthanhad thattodebate satisfy this issues. was a considerable an This educational provided range course aof less educational, so threatening individuals expertise environment came to and skills learn in - Givingoneapproachlevels participant amongst the but course overall "simpleparticipants. as participantsmuch but notlocal In simplistic"eThekwini flavourfound the as certain coursepossible participants content stimulated satisfactory. expected increased Thea more comment encapsulates this sentiment. interest as was example, the technical by the use of local expertise to give certain presentations. At Port Johns, as an 28 presentationChairman onof the Mngazanaforum's efforts. Mangrove Forum received a standing ovation following his ThecoursesThefavour. course processcourse were was presenters ofheld. presented alternating This hadallowed by short acknowledgedestablished forpresentations effective relationships experts acceptance with in working the with of fields the the sessions course municipalitiesof estuaries andfound its andmaterial.considerable where estuary the whichprerequisitetheAllmanagement process.the included municipalities for success.withthe allocation a good took understanding joint of financial responsibility resources. of local for context organisationalThis illustrated and local elements the resources. commitment of the This course to is a twoBuildingUniversityaccredited.While years each ago, on of ThisparticipantthisDEAT's KwaZulu-Natal coursewas Coastcareregarded could received isbe beingas Inductionrolled a important. certificate investigated. out Programme,nationally. Theof attendance option held of ataccreditingthe all course district is itmunicipalities notthrough formally the

29 ArcusAmathole6. References Gíbb,Gibb, District. 2005b.2005a. Prepared Development for the andof Amathole an implementation Integrated District Environmental Municipality, of an Integrated Management East Coastal London. Management Plan for the M.,Breen,London.Programme Ngulube, C., Adams, for P., the Paterson, J.,Amathole Batchelor, A., District.Sihiophe, A., Cowley, Prepared N., Taljaard, P., forMarneweck, the S., Amathole Turpie, G., J.,McGwynne, District Uys, A., Municipality, L., McKenzie, East van Niekerk, L., Municipality.CES,WRCWood, Report2003. A. 2004. Amatholeno TT Towards 237/04. State the of conservation the Environment and sustainable Report. Prepared use of Eastern for Amathole Cape estuaries. District PlanningCSIRPreparedCES 2004. 2005. forProcess IncorporatingBuffalo Buffalo in South City City Municipality. SystematicAfrica.Integrated Discussion CoastalConservation Document.Zone PlanningManagement into Plan.the Integrated First draft Development for comment. 2001.eThekwiniwww.local.government.zaIDCD/idpmanuallguideø.pdfDPLG Municipality, 2001. eThekwini Environmental Services Management Plan. June2001. Guide Pack: Integrated Development Planning. Available at eThekwini2003. Municipality,Municipality, 2004a. 2003. eThekwiniRevised Integrated Environmental Development Services Plan Management 2003 Plan. June - 2007. NovembereThekwini 2004. Municipality,Municipality, 2005. 2004b. Draft eThekwini Coastal Management Municipality Strategy Environmental Version 4.Policy Initiative Hay,ofeThekwini Environment D., McKenzie, Municipality, Report. M. 2005. undated. Managing Aquatic estuaries Biodiversity. in South Draft Africa: Chapter a step of bythe step eThekwini guide. WRC State McGwynnecollaborationandReport knowledge No. L TT and between243/04 McKenzieon estuaries researchers M (2006).into the and Policies IDP authorities and and related procedures at local, processes fordistrict incorporating are and established provincial information through levels, unpublished Water Research Commission Report, K5/1485 30 DEAT.Analysis.Palmerindicators Development Identification to be integrated Group, of local 2004. into level DevelopmentIDP, responsibilities EIP/EMP of aand core for SoE set the ofreporting environment. environmental processes. Preparedperformance for Situation TurpiemanagementRogers, J, K., Sihiophe Biggs, of the N, H.rivers Carter 1999. of theA,Integrating MaswimeKruger National indicators, T and HoskingPark. endpoints Freshwater S (2006). and Maximisingvalue systems Biology, 41, 439-451. the socio- in strategic protocolunpublishedeconomicUrquhart, for incorporatingbenefitsP., Water Atkinson, ofResearch estuaries andD. 2002. enhancing Commission through A pathway estuaryintegrated Report, to values sustainability. planningK5/1485 in planning and Localmanagement: and Agendamanagement, a 21 in SA. UCTrationale and VanCommissionmanagementEEU. Niekerk DEAT L, Report,inpublication. Taljaard South K5/1485 Africa:S and Schonegevel Training Course L (2006) Manual, Introductory unpublished Course to Water Research Estuarine

31 INCORPORATING ESTUARY MANAGEMENTINTEGRATED INTO DEVELOPMENTPROCESSES OF LOCALPLANNING GOVERNMENTPOLICIES AND PROCEDURES FOR Lesley McGwynne and Margaret McKenzie Water Research Commission Report July 2007 estuaries)In most Eastern are often Cape overlooked municipalities, in favour environmental of social needsissues associated(including the with protection under- of Executive Summary an ofmunicipalbedevelopment important estuariesintroduced procedures. role andto inensure povertythe Thismanagement that reportrelief. estuary aimsSince ofrelated toestuaries municipalities identify issues theat areceive mechanisms local appear level, attention destined mechanisms to raise through tothe play profileformal need to in municipal integrated development planning processes so that oninbeprojects.appropriate municipalities priorities,regarded Although protection asand well thatare the definedlackinexperienced processmeasures expertise, and to systematic, candevelop atare be integrating often formally an it Integratedwithout is notimplementedissues simple clear Developmentbetween policies by throughany municipal meansto guidePlan legally particularly (IDP)sectors.decisions binding can identifycompositiondifferencesFundamentally and addressofin thedetails the IDP priority IDP ofRepresentative taskprocess issues. teams isMeasures the andForum, same workshops, recommended and for allthe municipalities capacity roles in of this of municipal IDP report although role to players raiseofficials, there the to are asoflOPimplementprocess.profile this possible. Representative body of Theestuaries these is Atmunicipala fundamentally themeasures Forum, aresame Environmentalgeneric lobbying andtime, important since and the the manyrelateManager cause Manager activity of to ofthe each thatestuary should iskey theshould of planning protectionmostthe develop besix appropriate undertaken activitiesphases and nurture ofinvolve official the IDP anthe to among members as early allies,playersthenegotiationenvironmental short he to shouldand support aroundlong-term, lobbyparticipate his the drivegroup orderthe toin inManager theprioritise inthis which formulation Forum should environmentalestuary of which ofsucceed relatedthe he lOP issuesis inissues. alsoProcess persuading shoulda member.Together Plan be these duringprioritised With with role- somethehis in beForissuesPreparatory the so environment that he Phase can toprepare to be create recognised to andmake identify asfull ause priority opportunities ofsingled them. issue and for for the estuary inclusion protection of estuary to out above other equally deserving environmental causes, the anofhimselfoperationawarenessEnvironmental coastal individual will resources.with needcampaign butManagerhis environmental shouldenvironmental Success in will the be need IDP theshould management tolobbyoutcomeRepresentative drive not group. however a dedicatedof training aTo campaign dependForumdo thatandthis includesonineffectively,concerted fought particularthe efforts the jointly environmental the managementin and closeManager with skills co-his of Outsideonethatenvironmental ofhighlights his of priorities. the IDPallies.the managementprocess, If not already the Manager of in coastal place, should resources,developing build and especiallya sound actively environmental estuaries,maintain links must policy with be organizationsenhanceprocess.managementgovernmentalother environmental Thesethe organisations accuracy committees),(both links regulatorygovernment are and vital(NGO5) manycredibility notagencies and (e.g.ofonly which NGOs) of EMFs,to (e.g.its obtain may friendsDEAT,to workco-operatetheir associations, DEAET, alongsideinput into with DWAF) thehim natureeach processin and theother IDP toin outcome but also to encourage reserve non- protectingespecially thenatural environment. assets, an approach that will be to the benefit of all role-players and developmentcumbersomeoverandlt needs clearly an toextended beplandefined processremembered that as periodsatisfies recentlyinto atothat thefocused, streamline as the expectation 2000. requirement efficient lt willwhat of take mostone isfor manycurrently lDPsthat stakeholders. generatesrevisions was a first and a truly much time consuming and introduced in 1996 integrated learning CONTENTS Chapter INTRODUCTIONDescription Page 1-1 2 2.22.1ENVIRONMENTAL RESPONSIBILITIES OF LOCAL GOVERNMENTLocalThe Constitution Government: Act Municipal 108 of 1996 Structures Act 117 of 1998 2-32-12-1 3 2.3INPRINCIPLES THE EASTERN AND POLICIESCAPE AT AGOVERNING LOCAL LEVEL COASTAL MANAGEMENTNational environmental legislation 3-12-4 3.23.1 AfricaTheIntroduction White Paper for Sustainable Coastal Development in South 3-1 3.43.3 MunicipalEastern3.3.1 Cape coastal provincial management coastal policy management policy The Eastern Cape Coastal Management Programme 3-33-2 3.5 Local3.4.23.4.1 Agenda 21 - sustainable development at a local level BuffaloProgrammeAmathole City Municipality Coastal Management Plan District Municipality Coastal Management 3-53-43-3 4 4.1PRINCIPLESINTEGRATED AND DEVELOPMENT PROCESSES PLANNING What is Integrated Development Planning? - LEGISLATION, 4-1 4.2 Underpinning4.2.34.2.24.2.1 legislation TheNationalMunicipal South AfricanEnvironmental Systems Bill Act of Rights32 Management of 2000 (1996) Act 107 of 1998 and 4-24-1 4.44.3 KeyPurpose phases and of core the objectiveslOP process of Integrated Development Planning legal obligations for local municipalities 4-54-44-3 4.4.54.4.44.4.34.4.24.4.1 IDPlOP PhasePhase2: 3:4:1:0: StrategiesProjectsIntegrationAnalysisPreparation 4-114-10 4-84-64-5 4.5FACTORS REGULATING THE INCLUSION OF ENVIRONMENTAL Governmental4.4.6 roles and responsibilities IDP Phase 5: Approval 4-134-12 5.1MUNICIPALITIESPROJECTS INTO THE IDPS OF THREE EASTERN CAPE Introduction 5-15-1 5.2 IDP5.2.1 5.2.35.2.2development in Ngqushwa Municipality budgetIdentificationIDPBackground review process of environmental and the prioritisation projects and of needsthe allocation of 5-25-5 5.3 IDP5.3.35.3.25.3.1 formulation in Great Kei Municipality KeyIDPBackground reviewissues processand priorities 5-75-6 5.4 IDP5.3.65.3.55.3.4 processes in Buffalo City Municipality ClusterGoalsProjects and programmes objectives- prioritisation and budget allocation 5-10 5-95-8 5.5 Inclusion5.4.35.4.25.4.1 of estuary related projects into IDPs - what are the key Objectives,IDPBackground review processstrategies and and the projects prioritisation of needs 5-125-115-10 factors?5.5.15.5.45.5.35.5.2 AbsenceAvailabilityRoleMunicipal of ofan of aenvironmental Environmental guidelinedefined environmental documents management Manager policy capacity 5-135-15 5.5.75.5.65.5.5 AwarenessCommunicationmanagementsocio-economic of of legal institutionsthe between responsibilities municipal sectors wellness link between environmental health, and the functionality of 5-16 5.5.95.5.85.5.115.5.10 DistrictSupplementary municipality funding leadership CommitteeInfluenceInclusion of of environmental the Municipal special Manager interest and groups lOP Steering 5-165-175-16 5.5.145.5.135.5.12 StateRoleMentorship of of provincial the Environment and national Reports government 5-175-18 ESTUARYMUNICIPALITY,INTEGRATED5.6 MANAGEMENT DEVELOPMENT KWAZULU-NATAL, PLANNING AND ITS IN RELATIONSHIPETHEKWINI WITHConclusion 6-1 6.1 Introduction6.1.36.1.26.1.1 eThekwiniBackgroundDefining estuary estuaries to eThekwini management Municipality 6-26-16-26-1 6.26.3 DevelopmentInstitutional6.3.1 arrangements planning Long Term Development Framework 6-56-46-3 6.3.66.3.56.3.46.3.36.3.2 PrecinctSpatialLocalIntegrated DevelopmentArea (Special DevelopmentPlan Area) PlansFramework Plan Plan 6-86-76-5 6.4 Other6.4.26.4.16.3.7 strategies, policies and plans significant to estuaries EnvironmentaleThekwiniLand Use SchemeCoastal Policy Management Initiative Strategy 6-12 6-96-96-8 6.66.5 ConclusionBudgeting6.4.3 for estuary management Environmental Services Management Plan 6-146-13 6.6.56.6.46.6.36.6.26.6.1 CatchrnentGivingIncludingIntegratingIDP takessustainable plannning Estuaryprecedence across development disciplinesManagement status Plans within within the the lOP 'Package 6-156-14 7 INCORPORATINGESTUARIES AND INTEGRATED ESTUARY ISSUES DEVELOPMENT INTO THE IDP PLANNING of Plans' - 6-16 7-1 7.37.27.1 IDPTheIntroduction formulationprocess of estuaryand the management process of estuary management - strategic and adaptive 7-37-27-1 7.4 lOPPromoting7.4.37.4.27.4.1 process and consolidating the case for estuary protection in the IDP Phase 2.1:0: StrategiesAnalysisPreparation 7-127-10 7-6 7.5 Procedure7.4.67.4.57.4.4 for an Estuary Management Forum to engage the IDP IDPIDP Phase Phase 5:4: 3:ApprovaIIntegration Projects 7-197-167-15 8 REFERENCES7.6 Conclusionprocess 7-197-20 8-1 AnnexureAnnexure 1. 2.Coastal Estuary legislation management and the activities role of oflocal eThekweni municipalities Municipality, AnnexureDurbanJohns,Buffalo Wild City 3. Coast) Outcome Municipality of workshops (East London) with andeThekweni Port St JohnsMunicipality Municipality (Durban), (Port St Abbreviations and acronyms used in this report CMPADMCESCAPBCM CoastalBuffaloAmathole CityandActionManagement District MunicipalityEnvironmental Plan Municipality Plan Services DEATDWAFDIMAFODEAETCMS DepartmentDistrictCoastal Mayoral Management of EnvironmentalWaterEconomic Office AffairsStrategy Affairs, and Affairs ForestryEnvironment and Tourism and Tourism EMPEMFEMEIPECCMP EstuaryEstuaryEnvironmentalEastern Management ManagementCape CoastalImplementationManager Plan Forum Management Plan Programme ICZMPICLEIHOGIPOENPAT IntegratedInternationalHeadGeographicEnvironmental of Department Coastal and Council Potential Information Zone for AtlasLocalManagement Policy Environmental Office Plan Initiatives LAPLA2IKPIIDPIEP LocalKeyIntegrated Performance AgendaAction EnvironmentalDevelopment Plan 21 Indicators Plan Plan NEMAMSAMECLTDFLED NationalMunicipalMemberLongLocal TermEconomic ofEnvironmental Systems the Development Executive Development Act Management Committee Framework Act 107 of 1998 SDFSAMPIMMSPENGO SpatialStrategicProjectNon-governmental DevelopmentExecutiveInformation Adaptive Managementorganisationand Framework Management Support SWOTSTDSoESMMESDP Strengths,SexuallyStateSmall,Spatial of MediumDevelopment the Transmitted Weaknesses, Environment and Micro-Enterprises PlanDisease Opportunities and Threats i INTRODUCTION ofPhase guidelines I of the to Eastern promote Cape the effectiveEstuaries management Management and Programme sustainable produced use of Easterna series beforemunicipalresources.estuariesCape estuaries. to planlegislation,fall With withintheir Local the own their localadvent municipalities futures areasauthorities of and aof new jurisdictionachieve arecurrently coastal most their likelyhave and policy goals. mainlymoreto useand power these localnew andenvironmentalpeopleguidelines opportunity use because estuary thanand ActA managementDevelopmentkey (MSA) and enabling of 2000, Plansand piece decision which of legislation requiresmaking. forThe local IDP authorities is a strategic is the instrument Municipal Systemsthat holds (IDP5) to guide and all municipalities inform their to planning, prepare Integrated budgeting, toprocessestuariesandmunicipalities introduce socially that the measuressustainable. buildsneedaccountable toan protect toIDP The address for is MSA servicetheimportant goodshas environmental delivery provided becauseand servicesthat the itis motivationconcerns offersenvironmentally, these several systems forand local opportunitiesin theeconomicallymunicipalitiesprovide. case Theof to municipalcuffingdevelopmentappropriatelobby for issue sectorsand management canand develop andbe focuses 'mainstreamed' departments. a case primarilyaction. for Sinceestuary oninto priority thethe protection planning lOP issues, informs and theand operationalenvironmentmunicipal the implementation planning stages as a cross- of and allof Conservationgovernment,budgetsmunicipalitiesMost local and andmunicipalities expertise,of are thehigh poorly natural service little informed in environment deliverythefinancial Eastern about expectations support the receivesCape impact operateand from environmental guidance the within communities thefrom degradation context upper they of tiers serve. limitedhas of on little or no attention because environmentalearmarkediterationshasthe qualitybeen no ofof as formalthehuman instrumentalpolicies almost-final delegation life. (Breen They in Coastal areof achievinget environmental alsoaI. 2004, unaware the van objectives management ofNiekerk, their legal of pers. national obligationsresponsibilities. comm.). and sinceprovincialMunicipal From there Bill, coastal municipalities appear to be andimperativesupportco-operationresponsibilities estuaries the to inclusion withshowin thereforeparticular. the a positiveof relevant environmental need commitment provincialto be clearly concerns and to outlinedprotect national into the and departments. healthIDP formally process, of natural delegated This and ecosystems, willprovide throughstrongly the intosystems.developmainRaising the challengeIDP andThemechanisms and maintainingproject supported to the presented tosuccessful profile bythe adequate profile estuaries ininclusion thisof fundingestuaries report so of that measuresand aims appropriateduring manpower. to theidentifyto protectIDP projects processopportunities the are health presentsincorporated of andthese the 2.I.The project is presented as the outcome of four tasks:A mainstreamingreview of policy, estuary legislation issues and into literature local land-use ori current planning practices processes; and plans for mainstreamingInterviews with estuary local authorities concerns; to investigate methods and opportunities for 1-I managementDocumentationFormulation of forums requirements of a to procedure engage for theincorporation for IDP local process. municipal of estuary managersissues into IDPs;and estuary and 22.1 ENVIRONMENTAL GOVERNMENTThe Constitution Act 108 of 1996 RESPONSIBILITIES OF LOCAL The Constitution clarifies the objectives of localTo ensureprovide government thea democratic provision as: ofand services accountable to communities government in a for sustainable local communities; manner; theTo promoteencouragematters ofasocial safelocal the andandinvolvement government. economichealthy environment; of development; communities and and community organisations in Sectionfunctions.theSections establishment 156(1), 155 and (2) 156 andof municipalities of(4) the state: Constitution (local together authorities) with Schedulesas well as 4Btheir and powers 5B outline and (1) A municipality has executive authority in respect of, or has the right toScheduleThe administer local 5;government and matters listed in Part B of Schedule 4 and Part B of - the(2) Amatters municipality that it hasmay the make right and to administer.administer by-laws for the effective administrationAny other ofmatter assigned to it by national or provincial legislation tomattermunicipality,(4) local The listed government, national in by part agreement government A if of Schedule and and subject4 or provincial Part to A any of Schedule governmentsconditions, 5 which the must administration necessarily assign relates of a to a The mandated responsibilities of municipalities are thus defined by the Constitutionthethat municipality matter in would has most the effectively capacity to be administer administered it. locally; and zonetheeffectivelyresponsibilitiesSchedules mandated as well asadministered municipal4B those andthat responsibilities can5B. responsibilities locally, be assigned and that if that therecan to relatemunicipalities be is delegated.the to availablethe management capacity. of Table the coastal 2.1 lists Schedules 4A and SA are if thesenational could be more and provincial Tablemanagement 2.1. Mandatory according responsibilities to Schedules of 4B municipalities and 5B of the relating Constitution. to coastal These zone are aovernmentcompared with (Schedules responsibilitiesSchedule 4A4B and 5A'L that can be delegatedMandatory by national municipal and responsibilities provincial Schedule 5B National and provincial Scheduleresponsibilities 4A that can be delegated to municipalities Schedule 5A BuildingAir pollution regulations crematoriaCemeteries,Beaches and funeral amusement parlours facilities and AgricultureforestsAdministration (?) of indigenous Provincial planningcultural matters servicesMunicipalLocal tourism healthplanning FencesControlCleansing ofand public fencing nuisances EnvironmentDisasterCultural mattersmanagement Municipal public works Local amenities andnationalexcludingNature marine conservation botanicalresources national gardensparks, Stormwaterharboursjetties,Pontoons, piers ferries, and MarketsLocal sports facilities RegionalPollution controlplanning and servicesWaterinmanagement built andup limited areassanitation systems to Municipal abattoirs Soildevelopment conservation sewagewaste-watersystemspotable water disposaland and domestic supply systems PublicNoiseMunicipal places pollution roads TourismUrban and rural development (2005).The definition Those thatof the apply competencies to specifically in toSchedules coastal aspects 4B and are 5B shown were inoutlined Table 2.2.by CES TrafficandRefuse solid and waste removal,parking disposal refuse dumps regulationPontoons,Competency offerries, international Schedule jetties, 4B piersTableand nationaland 2.2.harbours, shipping Definitions excluding and the of Schedule comDetencies relevant to the coastal zone the Establishment,Definitionphysical facility operation, of Pontoons, management, ferries, jellies, control piers and and regulation harbours. of matters related thereto. hoursIncludesshippingExcludes of operationmatters.activities regulation inand andthe so harbour,control forth. of access national thereto, and international safety issues, BeachesCompetency and amusementSchedule 5B facilities IncludesamusementEstablishment, locations, facilities operation, days, and hours,beach management, licensingfacilities control and safety and regulation of DevelopmentoperateMandatory within coreGroup a climateresponsibilities (2004) of attributes considerable are thenot uncertaintyuniformly uncertainty applied to the and followingacross confusion. municipalities, factors: The Palmer which BoardConstitutiontoA lackthe providesofdifferent clarity despite definitionsover spheres the the fact precise for of that thesegovernment ameaning newfunctions. document of within the powers by Schedules the Municipaland functions 4 andDemarcation assigned5 of the to NationalappropriatenessFunctionslocal municipalities and can Provincialbe of shifted the or issue. vice functionsfrom versa) one tiercan depending of be government assigned on available to anotherlocal capacitygovernment, (e.g. from and district theif the ActivitiesprovinciallocalMinister level areor departments(and MEC increasingly if theredecides isand capacity thatdelegated programmes it is tomore do to so). appropriatelocal(often governmentwithout to accompanying deal fromwith thenational issuefunding). andat the Constitution.functionsthereforedepartmentsMunicipalities take and on respond responsibilitiesprovinces to assectoral well as asrequired legislation, issues which generated initiatives effectively by fromtheir increases nationalcommunities. their government current They significantly transcending those set down in Schedules B of the 2.2 Local Government:SchedulesThe Municipal Municipal 4A, Structures 5A, 4B Structures and Act 5B(Ch of 5)Act the allocates 117 Constitution of 1998the powers between and functionsthe tiers listedof local in Tablefunctionsgovernment.management 2.3. andlisted The Category powers (after indivision both Palmer ofA Schedules.municipalitiesdistrict Development and localSections (metropolitan municipalities.Group 84(1) 2004) areas) (amended) are Those summarisedhave pertinent responsibility and 84(2) in toTable coastal list for 2.3. the all of functions and powers between district and local DevelopmentmunicipalitiesIntegrated Group development 2004) planning for the district municipality District municipality related to coastal management (MSA of Preparation of IDP for local municipality- Local municipality 1998)(after Palmer DomesticPotablemunicipalitiesas a whole water waste insupply waterthe area systems and of sewage the district disposal municipality systems including a framework for IDPs of all AirPotable pollution water supply systems (where there is capacity) establishment,disposalsites,Solid bulkwastestrategy transfer disposaloperation facilities sites: and and (a)control wastedetermination of disposalwaste disposai offacilities a waste for (b) regulation of waste disposal (c) Local tourism MunicipalityEstablishment,Municipalmore than roads health one local servicesconduct municipality (environmental and control in the district of health) cemeteries and MunicipalBeachesStorm water parks and recreation Promotioncrematoria of local tourism 2-3 Local amenities RefuseNoise pollution removal, refuse dumps and solid waste where(PalmerresponsibilityWhen capacity a Developmentfunction is to lacking, buildlies withGroup capacity and a localto2004). perform within municipality, localthis function municipalities the district in District municipalityto Managementperform this also functionAreas has the Public places 2.3 National environmentalIn addition to thelegislation responsibilities set out in the Constitution and Municipal System Act, roletodesignedresourcesthere the of ismanagementmunicipalities a for rangethat the have coastal of ofnationalare directestuaries. describedzone implications legislationas aThe inphysical Appendix most applicable for pertinentand local 1. ecological government. tocoast-related the entity management and This legislation as legislation such of coastalandapplies the is

2-4 3 3.1 PRINCIPLESMANAGEMENTIntroduction IN THE EASTERN CAPE AT A LOCAL LEVEL AND POLICIES GOVERNING COASTAL goalsandSustainableSouth while andAfrica's it objectives recognisesCoastal policy Development on estuariesand coastal Plan asmanagement of of an Action2000) integral focuses are and(as geared reflected importanton the towards coastal incoastal the zonetheWhite ecosystem, sustainable as Paper a whole, forits thesemanagementThedevelopment policiesreview presented areof policy coastal also and inrelevant resources, thisthat section of torelated thewhich covers management initiatives, includes national, estuaries. and provincialof although estuaries. and not Environmentalmunicipal explicitly coastalstated, 3.2 The White Paper for Sustainable Coastal Development infactorssoclo-economic Southmanagement that Africa directly thatissues. and focuses indirectlyThe reviewon sustainable govern therefore the developmenteffective adopts a management holistic must approach include of estuaries. governance and includes and objectivesmanagementThe White for Paper coastalpolicy incorporates inmanagement, South Africa. the andfundamentals lt sets binds out these a vision of together NEMA for the andin acoast Planrepresents andof Action. goals coastal and follows:The White Paper is underpinned by a setbenefitThe of principles coast from must the for manybe coastal retained opportunities management as a national provided as asset, by coastal with public resources. rights to access and generations,Coastalsocieties managementeconomicneeds enjoy and the todevelopment rightspromote efforts of humanthemust well-beingopportunities ensuredignity, ofthatequality coastal must and communities. be freedom. optimised to meet all people, including future inter-relationshipsTheand, coastdiversity,where must appropriate, health be between treated and rehabilitated. productivity as coastal a distinctive users of coastal and and ecosystems indivisible ecosystems system, and must between recognising be maintained the land, the approachCoastalsea and air. management under conditions efforts of uncertainty. must adopt a risk-averse and precautionary All theAllresponsibilityresponsibleCoastal peoplecoastal and managementenvironment organisations for negative and is impacts. coastalamust shared act resources. with responsibility. due care to avoid negative impacts on for the consequences of their actions, people must be held including financial A dedicated, co-ordinated and integrated coastal management approach must be stakeholdersbuiltdevelopedPartnerships to ensure and to conducted participatebetweenco-responsibility government, ineffectively. a participatory, for coastalthe private inclusive management sector and transparentand civiland society to manner. empower must be economyecosystemsThePolicy policy focus and recogriises(includingis livelihoods on the coastal estuaries) theof coastal range zone and communities. asof the thegoods enormous interface and At servicesthe betweencontribution same providedthe theseland and makeby thecoastal to sea. the time it acknowledges Theproductivity.servicesthe urgency policy through is of people-centred protecting planning andthe capacityandmanagement focuses of coastal onthat facilitating maintains ecosystems long-term,their to diversity, deliver economically goodshealth and efficient,andencouragingusersdevelopment. disciplines and emphasises co-ordination lt asalso well promotes as the institutions.and importance co-operationintegration lt views of geographically, managingand coastal shared managementthe responsibility across coast time as withscales, a flexible a range sectors and of socially equitable, institutionally viable and ecologically sound coastal holistically through policyecosystems.Themeevolving implementation D process of theEstuaries Whitethrough ofPaperare whichGoal given centres Dlcontinuous specialof this on theme, mention naturalreflection, which resource in learningthe states recommendations management and that review "special take of attentiontowards coastal place. managementcoastarehealthwill needvulnerable inand broad to productivity be of togiventerms,estuaries. human to the ofmaintaining induced coastal core goals disturbance".ecosystems, and and where related suchAlthoughpossible objectives as estuaries rehabilitatingthe are andapplicable dunes,the diversity, towhich the theme focuses on the theThedirectandof inclusion Whitedegraded non-renewable management Paper of systemsestuaries paves andresources. and thein thecoastal waypractices quantity for The protected the that future and protection promote qualityareas, of South of ofanthe estuarine freshwater emphasisAfrican sustainable estuaries biodiversity on inputs theuse rehabilitation of (Turpiedepends renewable through et onal. 3.3 Eastern Capegoverning2002). provincial The the White health coastal Paper and managementproductivity incorporates of these thepolicy policy systems. principles to address key issues 3.3.1 andManagementEasternThe setsEastern Capeout goalsCape Programme provincial andCoastal objectives coastal(ECCMP)(CES Management forpolicy the iscoast Programme2004). captured that The directly inprogramme the followEastern identifiesthe Cape five themes Coastala vision of threatsTheestuariesthe WhiteECCMP related although Paper. identified to biodiversity Asits corein key national objectives coastal protection, policy, areas directly industrial thein the applyECCMP province development,to these does based systems. not on referurban opportunities specifically development, and to poverty alleviation and livelihood opportunities, and tourism development. lt singled 3-2 outmouthFishchannelLondon the andSwartkops, regions. andmodification Mncwasa the Great Kromme, estuaries and Kei siltation/sedimentation. asGreat threatened was Fish threatened estuaries by freshwater byas The developmentwell Amathole extraction,as estuaries thatcoast habitat between focused between disruption, East at thethe Specific to estuaries, the ECEMP made theA following estuaryRegulatorygeneral management; recommendations:Estuary authorities Management need to workPlan togethershould be more developed closely tofor achieve Eastern effective cape EstuarymanagementDEAETestuaries shouldmanagement that issues;can dedicate be customized officials a suitably at forall trained individuallevels personshould systems; tobe deal trained specifically and empowered with estuary to 34 Municipal coastal management policy shouldenforceLocal be authoritiesthe ongoing regulations andshould link of personnel thewith Marine related dedicated Living initiatives; Resources to estuary Actmanagement. 18 of 1998. Training 3.4.1 theThebetween onlyAmathole Amatholedistrict the District Great level District MunicipalityprogrammeFish MunicipalityRiver in (ADM)in the the westCoastal CoastalEastern and Management Management theCape. Mncwasa lt covers Programme River the incoastal the (CMP) east zone andis provincialManagementcompelsobjectivesincludes policiesthe69 developed estuariesmunicipality Plans already for of forall whichto estuariesthedescribed. promote ADM 12 are whereCMPthe Onepermanently development arethere strategy closely is development open (represented andaligned toimplementation the with pressure.sea. the as The nationala project)goalsofFollowing Estuary and ADM'sestuariestheMpwekweni, estuary CMP were conservation was Kobonqaba,identified aligned (not rankingswith Kwenxura, exclusively) the Easternof Turpie Nahoon, in Capethe et followingal.Gqunube, provincial (2002) order: andGreat spatial TurpieKeiskamma, Kei framework, and (2004), Great Mbashe, priority Fish.which suchstates as: that development must not be permittedDunesState in forests; andenvironmentally estuaries; sensitive areas AlongWithinGame major30 reserves m ofrivers water and including courses; nature the sanctuaries; Great Kei, Fish and Mbhashe; WetlandHeritageSlopes areas. steeper sites with than tourism 1:6; potential; and 34.2 Buffalo City Municipality Coastal Management Plan BCM's"uniquedraft form Integrated and defines conserved Coastalthe following coastline Zone strategic Managementthat offers objectives accessfragmentingTo Plan spatially and (ICZMP)(CESto achieve opportunities defineexisting its areas overallnatural2005) for forall": currently coastalconservation areas orand negatively development affecting without landscape further vision as a in TakingToquality;in ensure an intoaesthetically future account development andthe aboveecologically isensures uniquely sustainable suitably coastal, locatedmanner; carefully and plannedequitable and access occurs to theTovisitors coastal guidepromote to environment; theBCM; theprovision uniqueness of suitable of the infrastructure BCM coastline and throughfacilities appropriatefor all residents tourism and Torequirementsstrategies; ensureensure pollution the within maintenance the within estuaries the coastal ofand water near zone shorequality is preventedcoastal environments; through that meets existing appropriate legal These strategic objectives were translatedToinfrastructureimplemented intodevelop Coastal practical, and cost Action monitoring; effectively. useful Plans and(CAPs) realistic management guidelines that can be with management isinterventions the focus of one of these ActionCoastal Plans Action of which Plan 2:1:there EstuarineSpatial are Planningfive Management viz: & Development that can be implemented cost-effectively. Estuary Coastal Action Plan 5:4:3: ConservationCoastalRecreational Resource Management Management and Monitoring Theestuarystatesmanagement objectives or registers uses, ofthrough setting CAPand management2: managementco-operative Estuaries recommendationsManagement management,guidelines and focus setting bylaws, for onpriority targetspromoting and systems. developing for futuresustainable detaileddesired The plan recommends four general managementdecisionEstablish actions making forEstuary BCM and estuaries:Management the compilation Forums of Estuary to Management Plans (EMPs); facilitate public participation in chemical,DevelopDevelop EMPsa biological amonitoring database that outlineand programmeto socio-economic store goals and and accessto objectives track factors all long-term relevant thatfor each impact changesscientific estuary; estuarine inand key health;management physical, and information for individual estuaries. 3-4 Quinera,Therange plan of managementGxulu,recognised Tyolomnqa, eight actions priority Ncera under estuariesand the Goda themes as (after follows: described Wood Nahoon, et al.for 2004). the Buffalo, White Gqunube, Paper for It proposed a 3.5 Local Agendasystems;Sustainable 21 - sustainablethese Coastal plans need developmentDevelopment. to be verified Inat throughaddition a local a it levelprocess describes of publicpreliminary participation. EMPs for 15 Agendapartnershipdevelopment 21 is anbetween into internationally the 21stlocal century. endorsed The planaction highlights plan for theimplementing importance sustainable of a working authorities and their communities to implement the theLocal1992,proposals World authoritieswhich Summit and was guidelines on reaffirmedhave Sustainable a key of throughthe role DevelopmentRio to playDeclarationthe Johannesburg in the in sustainable 2002.on Environment Plan use of Action of and estuary Developmentemanating resources from of socialresidentssince'developmentactivities manysystems of (Urquhart ofa communitythe uponthat problems delivers andwhich Atkinson without the basicand delivery solutions threateningenvironmental,2002). of At theselisted a localthe insystemssocial viability levelAgenda and sustainable depends'of economic21 the are natural, rooted (Internationaldevelopment services built in local and to allis aCouncil local-government-oriented for Local Environmental meaning Initiatives of sustainable (ICLEI)).localmanaging communities Interpretingdevelopment economic and this as:development that definition are supportive leads in ways to of that community use the life talents and power;and resources of overusethepreventingdistributing long-term; of natural the and benefitsdegradation resources of developmentand of the generationnatural equitably environment of large and tovolumes sustainthat occurs of these waste. through benefits the in andeconomic(afterlong-termLocal justice. UrquhartAgenda development The strategic key21and (LALA2I Atkinson approach and21) principles employment,translates 2002) to helpof are sustainableAgenda aslocal environmental follows: municipalities 21 developmentinto actions protection, balance at for the localand localthe socialgovernment demands level. equity lt is ofa fairnessOpportunitiesWisenot usean obstaclein and sharing managementto developto it;wealth, must ofopportunities the be environmentavailable and to isallresponsibilities, necessary people for our with survival, particular it is - this means greater Thereemphasiscultural,Development are onecologicalenvironmental, the pooris much limits and political, disadvantaged;tobroader human moral thanactivities and economic spiritual that must growthdimensions; be respected; and also has social, developmentthatEnvironmentalPeople affect musttheir processes belives; given and the - this opportunity includes toIntegrated participate Development in all activities Plans and (IDP5),decisions considerations must be integrated into all planning and plansLocal forEconomic water, transportDevelopment and waste.(LED) plans, land use or structure plans and sector

3-6 4 INTEGRATED DEVELOPMENTPRINCIPLES PLANNING AND PROCESSES - LEGISLATION, 4.1 What is IntegratedIntegrated Development Development Planning? Planning is a key process whereby municipalities arrive at ofconsultative,decisions municipalpromotiongovernment, on management issuesof systematic corporatelocal such economic service ason and municipalkey strategicdevelopment providers,issues budgets, but manner. NGOs also and land guides and institutionalThe management, the theprocess private activities transformation sectornot service of only otheroperating delivery,informs spheres in in a Anprioritymunicipality.the Integrated municipal over allDevelopment ltarea servesother (DPLG plans as the2001). that Plan principal guide is a developmentfive-year strategic strategic management at a local development level. instrument lt must plan andreflect for takes athe 4.2 Underpinningarepriority legislation used needs objectively of a municipality to address theseand its needs. residents and ensure that available resources 4.2.1 TherequirementsThe Bill South of Rights African that of the Billthe actions of South Rights of African government (1996) Constitution (and civil (Act society) 108 mustof 1996) meet sets to protect the "...theSectionpresents Everyonehealth 24of the theofhas thecornerstone environment, the Bill rìght states forthat: and the consequently management the of health the country's of its citizens. natural lt resources.therefore generations,to anhave environment the throughenvironment that reasonable is not protected, harmful legislative toprevent fortheir theand health pollution benefit other or measureswell andof presentbeing; ecological that and and degradation; future Since the Constitution is the supreme law of the land, all legislation and policy must whilesecurepromote promoting ecologically conservation; justifiable sustainable and economic development and social and development." use of natural resources Act)intoandmunicipalitiesbe provideconsistent multisectoralIndependent the to opportunitywith ensure planningDevelopment it and that processes. conformfor their municipalities Plans activities to (lDPs) it. The do (as to notBill integrateprescribed negativelyprovides environmental intheimpact the legal Municipal the imperative environment, concerns Systems for 4.2.2 Municipal Systems Act 32 of 2000 2004).managementdevelopingIntegrated The MunicipalaDevelopment strategic and decision-making Systems development Planning Act (MSA) plan isin aa to(S25) participatorymunicipality guide states and that:inform overplanning aall five-year planning, process term budgeting, aimed (CSIR at municipalityterm,"Each adoptmunicipal which a single, council - inclusive must, within and a prescribedstrategicLinks, plan integratesperiod for after the and thedevelopment co-ordinates start of its elected plansof the and takes into account proposals for the AlignsthedevelopmentForms plan; the resourcesthe policyof the frameworkandmunicipality; capacity and of generalthe municipality basis on withwhich the annual implementation budgets must of be Section 26 states that an IDP must reflect at arequirementsbased; minimum:Is compatible binding with on national the municipality and provincial in terms development of legislation" plans and planning transformationAAn communitiesvision assessment for long needs;excluded ofterm existing development, from levels basic of services; with development emphasis onincluding development an identification and internal of AsectoralThedevelopment; spatial development plans development and strategies prioritiesplanning framework requirements;andwhich objectives must including be alignedincluding basic with the guidelines any aims national of local for or landeconomicprovincial use AOperationalmanagement; Disasterfinancial management planstrategies; including plans; a budget projection for at least the next three years; The IDP process must conform to two principles:Keyand performance indicators and key performance targets. IDPs are legally binding and no single executivePlanning decisionPlanning must maymust be be take developmentally in placeconflict within with theit.oriented; framework and of co-operative government. equityoptimumTheydemonstrateThe MSA offerand allocation therefore thethe a upliftment municipality'sopportunity of provides resources of poor for commitment theintegration communities. in statutory a way to thatbetween uphold basis supports forthe sectoral theprinciples sustainable compilation strategies of the development, Billof to lDPsof achieve Rights. that 4.2.3 NEMAlocalNational municipalities is Environmentalthe cornerstone Managementlegislation for allAct environmental 107 of 1998 andmanagement legal obligations activities. for lt aredepartmentssets (after out the CSIR principles whose 2004): activities for environmental may impact management theEnvironmental environment. that management Theapply principles to all governmentmust of NEMAplace people and their needs at the forefront of of EnvironmentalDevelopmentitsthe concern. environment must management are be linked socially, and must environmentally interrelated. be integrated, and acknowledging economically that sustainable. all elements ResponsibilityensureEquitableEnvironmental human access forwell-being justice theto environmentalenvironmental must must be be pursued. pursued. resourceshealth and tosafety meet consequences basic human ofneeds a project and TheorDecisionsgovernance activity participation existsmust must takethroughout be intopromoted. account its life thecycle. interests, needs and values of all interested of all interested and affected parties in environmental lightconsidered,Theand affectedofsocial, such considerationassessedparties. and and evaluated, assessment. and decisions must be appropriate in the economic and environmental impacts of activities, must be environmentalTheinformationDecisions environment mustmust resources be is providedtaken held must inin aninpublic serve accordance open thetrust and public for transparentwith the interest the people, law. and manner, thethe beneficialenvironment and access use must toof environment.adverseThebe protected costs health of asremedying theeffects people's must pollution, common be paid environmental heritage. for by those degradation responsible and for harmingconsequent the significantmanagementshores,Sensitive, estuaries, humanvulnerable, and resource planningwetlands, highly usage procedures,dynamic and and similar developmentor stressed especiallysystems ecosystems, pressure.require where specificthey such are attention subjectas coastal toin TheseNEMAprovincialA local mustaremunicipality environmental applied comply when mustwith management thestrategiesensure principle that and itsofplans. projectsanIDP ecologically policy are is designedin keepingsustainable and with implemented. development national and lt must ensure that the principles of municipalitiesprocess. The relating IDP Guide to the Pack environment. (DPLG Municipalities2001)Avoid waste,pollution lists the ensuremust: and legal degradation recycling obligations or of disposal theof localenvironment; in a responsible manner; ConsiderenvironmentalMinimiseresources; andthe rights;remedyconsequences negative of impacts the exploitation on the environment of non-renewable and on people's natural Avoidecosystems;PayMinimise jeopardising specific the lossattention renewable of biological to sensitive, resources diversity; vulnerable,and and ecosystems; highly dynamic or stressed 4.3 Purpose and core objectives of Integrated DevelopmentAvoid disturbance Planning to cultural heritage sites. withineradicatingserviceThe thepurpose deliverymunicipality the of Integratedbydevelopment providing (DPLG Development2001). the legacy framework Through of thePlanning this for past, framework,social (IDP)puts and into is economicitto contributespractice facilitate development the appropriate towards ideal of Thedevelopmental1. objectives oflocal IDP government, (from DPLG and 2001)government fosterslt are linkeda culture by toensuring its of coreco-operative that: processes:is governance.a consultative process and aims to become a tool for democratic participationengagementdeliveryanalysisbottom-up is is created.isand infocused institutionalised;the top-down process and adecision is forum structured; formaking debate is inter-linked; on real issues and that affect service 2. lt is a strategic process and aims to ensure that:integrationunderlyinginnovativemost efficient costcausesof cross-cuttinguse and isand timemade not solutions ofsymptomsand scarce cross are resources; dimensional aresought addressed; for local issues and problems; are considered. 3. by:lt is an implementation-oriented processensuring and that aims defined to improve and substantive service delivery project proposals are designed; GuideConducted Pack under Series optimal (DPLG conditions 2001), the and IDP according process toshould guidelines ensure presented that municipalities in the institutionalplanning-budget preparedness links are madeis addressed. for feasibility; and IDP shouldarestrategiesmunicipalunderstand sensitive provide ofdevelopment to their a environmentalthe municipality. impactopportunity activitieson budgetary issues for intergovernmentalcontribute and and cross land-use to cutting furthering managementco-operation the visions, decisions.by ensuringobjectives that and dimensions and impacts, and lt also 4-4 4.4 Key phases of the IDP process Thecontent MSA (seeprescribes Section the 4.2.2) minimum and at requirements the same time for allows the IDP for in flexibility terms of to process accommodate and phases:Themakinglocal IDP circumstances. process thatis set is The consultative,out approach in the IDP strategic to Guide planning and Pack implementationis designed (DPLG 2001). to achieveoriented. There a decision-are six Phase 1O2 3Projects -- AnalysisStrategiesPreparation A Preparation Phase (known as PhasePhase 0) precedes 45 - ApprovalIntegration these five phases and focuses RauchactivitiesTheon developing rest (2002) of and this andoutputs.a section Process Urquhart Thecentres Plan andsources to on Atkinsonguide each of the information phase (2002). IDP. in terms are ofthe its IDP Guide Pack (2001), purpose, main planning 4.4.1 IDP PhasePurpose O: Preparation To plan the process to be followed in developing the lOP activitiesMain planning 2.1. DeterminingDistributingTo plan for districtroles organisational and level responsibilities alignment arrangements actions DistrictcostDevelopingFormulating estimate level action mechanismsactions programme for alignment and procedureswith between time frame, for municipalities public resource participation requirements, and for Outputs DistrictProcessprovincial/national level Plan framework (municipal) alignment planning,TheIDPmanage executive is initiateddrafting, the draftingcommittee, adoptionby the the adoption processorand executive review of indicateof drafting ofa mayor,theprocess how IDP. an orthe TheIDP (asa communitycommittee Process(MSA).a Process The Plan will of Plan)development councillors participateshould: to guide inmust ofthe thean drafting and review processes; (a)particularset out organisational establish two arrangements key institutional for structures: managing the IDP drafting processsenior IDPand inSteeringofficials to Committee support the consisting IDP Manager; of Heads and of Departments (HOD5) and (b) andseniorcouncillors,representativeIDP community officials, traditional participation.representatives. stakeholder leaders, groups, ward committeeadvocates chairpersons,for unorganisedRepresentative HODs groups, and Forum, which lt includes Executive Committee members, institutionalises and guarantees 4.4.2 IDP Phase 1: Analysis municipalityinformationThe Analysis collected (and Phase stakeholders) mustfocuses focus on onto an decideinformation assessment on priority that of isthe issuesrelevant existing or and problems situation. enables while Thethe Purpose Thetaking essential into account features factual of the data phase and arepublic described perceptions. below. To ensure that decisions will be based on: e influencingproperknowledgepeople's information priority developmenton available needs and and aand inthorough aproblems accessible municipality understanding resources of the dynamics Main planning- 1. Compilation of existing information activities 43.2. MunicipalitystakeholderReconcilingCommunity andcompilationanalysislevel stakeholder analysis of (includingexisting level analysis information economic, and social, community environmental / and Socio-economicSpatialinstitutionalIdentification analysis analysis) of andand municipal thegender spatial prioritydifferentiation representation issues ofI aggregating analysis of development priorities issues 9 Consolidationmanagement,alignment,In-depth andanalysis infrastructure)of sector analysis of specificpriority results issues:guidelines generic (transport, guidelines water, for waste sector Outputs problemsAssessmentUnderstandingPriority issues of existing or on problems nature, level dynamicsof development and causes of priority issues or forcesThe municipal e.g. situation should be assessed in the context of national level driving population influx, economic rise/decline, overallKnowledge financial on available frame) resources and potentials (including a tentative national environmental availableTheMunicipalproblems. analysis knowledge. decision-makers should not be sectoral should but be ratherknowledgeable issue-focused about making trends, best causes use andof localSectorresources,impacts priorities planning of aspriority welland should as meetsissues limitations. be sector-planning in aligned the context with the ofrequirements. existinganalysis and in a accessiblemanner that assets promotes and Since the information collected is likely to be at different scales, levels and from thisbutThedifferent phase.prioritised. mustprioritization places, Thetake identification into it of needs accountissues to of andbe HIV/AIDSPriority aggregated stakeholder Issues and and should unemploymentparticipation reconciled stem from are before issuestheimportant localissues that context partscan are beof inherentaninformationcommunity-,national IDP Representativeconcern.in theassessment. stakeholder- Analysis Priority Phase This Forumissues and consolidation ismunicipal-level areshownworkshop consolidated diagrammatically is (see a prioritieskey Sectionafter event taking and andin 2.2.1). Fig. the bestinto 4.i.outcome Thedoneconsideration process through of the (participatory)Community and analysis stakeholderDifferentiated by location and social -existingCompilation Service information gaps and analysis of Cross-sectoralcategory Reconciliation p, y assets-category AvailableDifferentiated resources, by area potentials, and social - OverarchingCrossMunicipality sectoral issues level analysis SpatialEnvironmentalInstitutionalEconomic Aggregation(gender/poverty)Socio-economic -In-depth UnderstandingCausativeDynamics/trends analysis factors the of exact priority nature issues of the issue - Resources/potentials Consolidation V Fig. 4.1. Analysis Phase process (modified from the IDP Guide Pack (DPLG 2001)) Priority Issues 1 4.4.3 IDP Phase 2: Strategies of Inwhat this it phase needs basic to achieve decisions and areways made to achieve on the it.future Strategic of the planning municipality involves in terms a objectives,Decisionsrationalprocess and ofand need developing transparent development to be made options way. strategies.on the(strategies) future If fullyvision and agreed formaking the upon, municipality, choices such indecisions adevelopment systematic, can Purpose Theunify essential and co-ordinate features of the the management phase are described of the planning below. process. To ensure broad inter-sectoral debate on the most appropriate ways to Phaseprinciples,Thistackle debate priorityof making available should issues choices occurresources, afterin the due inter-linkagescontext consideration of the and vision, ofcompeting various policy guidelinesoptions requirements and activitiesMaiñ plañning 1. Workshopsrepresentativesmeanslnter-sectoral of at dealing district workshops from with level relevant priority with as forumsall provincialissues affected for open andlocal national discussionsmunicipalities agencies on and ways and and Planninggovernment/sectorstrategiccorporate debatesactivities service (b) providersat alignment thecross-boundary workshops to ensure include: issues(a) well are informed addressed and andwell (c)facilitated inter- alleviationDesigningDeterminingDeveloping andLocalised a working vision gender Strategicobjectives equity, environmental,Guidelines (spatial, LED, poverty institutional AnalysingCreatingDefiningstrategic) and resourcealternatives deciding frames forupon each and strategy priorityfinancial alternatives issue strategies Outputs StrategicObjectivesMulti-sectoral options (for vision each and priority choice issue) of strategy (for each issue) Themunicipality's vision for long-term most important development development should beand multi-sectoral internal transformation and capture needs. the TentativeIdentification financial of projects framework for projects focusesTheInsteadparticipants. vision on of describes formulating It should an also idealfixed serve futureobjectives to state motivate (i.e. (beyond defining role players.a Council's what you term want of to office) do) early and in relevant core issues decided upon by consensus between LocalisedforWorkingthe a process, five-year objectives Strategic working period Guidelinesare and objectives developed they needmust that fortobe canbe eachdeveloped set be prioritybefore later for refined decidingissue cross-cutting (identified offer on strategies.some dimensions in flexibility.Phase 1)to locally.ensure Thesethat national cross-cutting and provincial aspects are: policies are interpreted and implemented 4-8 EnvironmentalSpatial development; sustainability; InstitutionalLocalPoverty economic alleviation aspects; development; and gender equity; realisticFollowing alternative the identification strategies shouldof objectives be developed for each to Priority encourage Issue, creative a broad thinking range of STDOther Plan 2000). cross-sectoral policy guidelines (e.g. National HIV/AIDS and systematicanalysedFollowingon ways to and ancriteria-basedaddress agreementdecisions issues. analysis.on on This the criteria, shouldmost appropriatealternative be done at bothstrategiesstrategies local and aremade district subsequently based levels. on a The core features of the Strategy Phase process are outlined in Fig. 4.2. Priority issues (from Analysis Phase) Vision for municipality ¿ GuidelinesLocalised Strategic Objectives for each priority issue V - environmentalpoverty/genderspatial local economic Strategies for each priority issue V - institutional Public debate into- DecideAnalyseCreate account strategicupon alternatives district alternatives alternatives and cross-boundary for local ìssues issues taking Identified projects GuideFig. 4.2. Pack Central (DPLG features 2001)) of the Strategy Phase process (modified from the IDP i 4.4.4 s IDP Phase 3: Projects concreteThis phase steps centres towards on thefulfilling design the of objectives projects for implementationPriority Issues. that will provide workTo byformulateensure technical a implementablesmooth teams, planning-deliveryadjusted project to needs proposals andlink localthrough conditions detailed by affectedPreliminaryForming groups ofproject residents budget task allocations teams M:pIijtîs EstimatingDecidingSettingDesigning indicators, activities, and financial planning outputs,timing requirements projects and targets, responsible locationsand adjusting agencies outputs and ProjectIndicators outputs forobjectives each with objective targets to existing and financiallocations resources adjustedplanningProject according Task according Teams to local toor smalla needspreliminary teams and ofconditions. budget technical allocation. experts carry Project out designsdetailed canproject be CostMajor estimates activities withand budgetstime frames with and sources responsible of finance agencies costsbetowards(parameterEach taken and projectthe tobudgets thatachievementachieve ismeasures assigneddefined specific of progress by togoals) targets).it.goals and towards(desired Eachaction onegoals), plansend also point (series targets has of responsibilitiesofan (measurable steps issue), that indicators need steps and to Thestrategies.whichProjects process in shouldturn involved should be aligned in be the in Projects with sectoral Phase policiesis illustrated and inplanning Fig. 4.3. requirements, line with locally driven priorities, objectives and Phase)Identified projects (Strategies Project Task V proposalsDesigning Project Teams ActionTargetsIndicatorsProject Plans goals proposalsDraft project SourcesCosts/budgetResponsibilityLocation of finance 4.4.5 2001))Fg. 4.3.IDP Processes Phase 4: of Integration the Project Phase (modified from the IDP Guide Pack (DPLG financialconsolidatedalignedProjectThis phase and andproposals isinstitutional consolidated criticaland integrated are for producingreviewedresource in termsprogrammes anconstraints for of IDP compliancecontent, that for isand the locationwell opportunities.municipalities with integrated. andvision, timing strategies Projectsand to forgenerate sector are and duringcapitalOutputsagencies/service thisinvestment include phase. aproviders. five-year plan. The action Spatial plan, Development a five-year financialFramework plan is and also a finalisedfive-year Tothe checkensurevision, and strategiesconsolidated harmonise and and resourcesresults integrated of project programmes planning for that compliance constitute with an 1 integrated Todevelopment check and planharmonise results of project planning for compliance with ScreeningTovision,integrated ensure strategies, draftconsolidated development project resources proposals and plan integrated programmes that constitute an programmeFormulatingDevelopingIntegrating projectsintegrated 5-year and financial sector programmes programmes plan and 5-year capital investment ConsolidatingFinalisingCompilingDeveloping spatialintegrated 5-yearintegrated development monitoringaction programmes programme framework and performance for cross-cutting management issues (povertysystem Main outpUts Operational strategy that includes: HIV/AIDS)reduction and gender equity, environmental, LED, institutional, Financial/capitalSectoralRevised projectprogrammes proposalsinvestment plan Integrated Environmentalinstitutionalspatial programmes development programme Programme)related framework to cross-cutting dimensions (e.g. A mustconsiderkey activity be multi-sectoral how in thistheir phase activities if the is to development affect get line other departments departmentsplan is to tobe think integratedand cross-sectorallyvice versa. and holistic. Strategies and DisasterMonitoring Management and performance Plan management system (with indicators) furtherTheSustainablecompliance phase planning consists withdevelopment and policies, mainly decision priorities,of criteria cross-checking, making. (e.g. objectives, Draft those project compiling n budget NEMA) proposals frameworks andcan revisingbe are used screenedand ratherto strategies.assist than for this institutionaldevelopment,concernsThescreening key mechanisms areprocess. development. the integrated for ensuring programmes the integration for the cross-cutting of sustainable issues development of spatial poverty reduction, The Integrated Environmental Programme must gender equality, environment, LED and includesThemainstreamingdemonstrate development performance IDP environmental compliance of an indicatorsIntegrated issues.with environmental andMonitoring end-points and policies Performancethat and define serve the System as a tool that for limits of 4.4.6 IDP Phase 5: Approval Thisdevelopmentacceptable is the phasechange. (i.e. social, of This feedback economicsystem on must theand includedraft environmental). IDP all beforethree dimensions it is finally approvedof sustainable and awareness.opportunityinterestedadopted by and toforthe comment affected municipal partieson thecouncil. anddraft. stakeholder To Through ensure this sustainablegroups process, must this development,be phasegiven sufficientoffers an buy-in that will enhance co-ordinated implementation and all governmentrelevantTo ensure that departments) before being are adopted given a chanceby the Municipalityto comment onCouncil the draft all stakeholders and interested parties (including relevant legitimacy,plan, thereby supportDiscussion giving and relevance. theof Draft finally IDP approved in the Municipal plan Councila sound basis of ApprovalAmendmentsDistrict-levelProviding by Municipalopportunity in alignment: line with Council for comments horizontal public comments co-ordination alignment,Provincial/nationalFinalAmendments adoption feasibility by and/or councillevelcheck/professional responsealignment by (legal local feedback) councilscompliance check, sector Main outpUts The final outcome is an IDP document that is approved by the Municipal Council s Amended and adopted Integrated Development Plan 4.5 Governmental roles and responsibilities responsibleand has the for support implementation of the administration, of programmes local and projects.residents, and the agencies Table2003,Theprocess roles from 4.1. and (afterBreenRoles responsibilities KwaZulu-Natalet and aL 2004)responsibilities are of outlinedDepartment the different of in different Table Agriculture spheres 4.1. spheres of and government of Environmental government in the in Affairs IDP processes LocalSphere(from Government Breen of Government et aI. 2004) To:Roles and Responsibilities FacilitateProvideAdoptanPrepare supportan IDP the IDP compilation to poorly capacitated of a framework municipalities that ensures co- Provincial Government To: Co-ordinatedistrictordination municipality and training alignment between local municipalities and the FacilitateMonitorProvide thegeneralfinancial co-ordination process IDP support inguidance the and province the alignment between district AssessandFacilitatemunicipalities programmes IDPs alignment of IDPs with sector department policies formulationContributeprogrammesProvide relevant of sectormunicipal and budgetsinformation expertise IDPs in andon the sector technicalallocation department's knowledgeof resources policies, to at the National Government To: theIssue local Integratedlegislationlevel andDevelopment policy in support Planning of guidelineslDPs SystemEstablishProvide financiala anational Planning assistance training and Implementation framework Management Support formulationContributeprogrammesProvide relevantofsector and municipal budgets expertise information policies and andon technical sector strategies departments knowledge topolicies, the theBe local guided level by municipal IDPs in the allocation of resources at 5 FACTORS REGULATING THE INCLUSION OF 5.1 EASTERNENVIRONMENTAL CAPEIntroduction MUMCIPALITIES PROJECTS INTO THE IDPS OF ThREE thereforeraisingaction.inclusionMunicipalities awarenessLobbying the of most projects are fordirectlegally among the to way integrationaddressbound councillors to compelto implementissues of andenvironmental municipalities thatthe projects municipalthreaten concernsthat to themanager, implementappear health into in and theoftheir appropriate estuaries IDPagitating IDPs. through The foris municipaldecisionofthe rolean integration Environmental is makerscritical activities of ofbecausethese canthe Manager valuehaveconcerns there onof (EM). coastaltheir intois environmentalInmunicipal goodsEastern and sector Cape services, assets. plansmunicipalities Successful andis an the important negative especially integration function impact this of little understanding among political figures and Ofeffectively.theestuary the insight five issues tocoastal recognise requires municipalities thepotential EM to problems inhave the aAmathole thorough and the district knowledgemechanisms (Great of totheirFish deal sensitivities,to withMncwasa them rivermanagementDevelopmentltRivers), supports control only a andBuffalo Unitfallfairly coastalunder that well City has the capacitatedmanagementMunicipality aAmenities strategic (BCM)IntegratedfunctionDepartment, officers. has only. In any Environmental contrast, which The coastal practical allocates Ngqushwa management aspects and staff Sustainable municipalityto of capacity.serve coastal as nationalenvironmentalnorthsouth of Buffaloand provincial managementpersonnel. City, and agencies, GreatThe has absence Kei, resulted and Mnquma district of in formal confusion andmunicipalities. delegationMbhashe about municipalities theof There responsibility relativehave is also roles no to little theenvironmentalfor of management departments and no dedicated Theagendassociallyappreciation IDP oriented isof athese planof the spending municipalities.that economic legally means commits value that of municipalnaturalenvironmental systems, budget projects toand prioritised community feature projects. low demands on the Efforts IDP for theirtheto aimsunderstandinginclude factors environmental to compare estuarythat influence of Ngqushwa, therelated management IDP the developmentissues identification Buffalo capacities,into City IDP processes and planning Great prioritisationIDP undertakendevelopment Kei will municipalities therefore of needs. by processes,municipalities need Thison the sectiona basisclear and and of forthereviewedinproject theIDP 2000 period of prioritisation andenvironmentally annually 2005/6; their first and theseoutcomes lOPs the relatedwere initialpresented to not projects. understandlDPs available toare theirAll currently for thethree Municipal this factors municipalities study. experiencing that Councils govern were theirin the 2002. established thirdinclusion IDPs revision areinto 5.2.15.2 IDP developmentBackground in Ngqushwa Municipality Thesurroundedand2004)Lover's estimated fairly comprising Twist. byevenly population communal The 21 spreadaverage 888 of land Ngqushwahouseholds. between number used for ofMunicipality 14 subsistencepersonsThe wards population perasis 84 farmingwardscattered 234 is is 99.27%(Statistics 6e.g. 714 traditional Bell, black,and South Crossroad, the 95% averageAfrica, rural, villages Thereageaveragehousehold of 19is density confusionyears. size is of 4.5 37.5 over persons. persons land administrationThe per municipality km2. About roles covers52% and of anthe powers area population of between2 245 are km2 the with local an under the whereascommunity.authoritySome mostenvironmental and The traditionalrural redistribution land issues leaders. ofthat state Mostthe farmsmunicipality urban is aland major needs belongs issue. to address to the local are: municipality is state owned and administered on behalf of the andInappropriatemanagementSoil thuserosion the economic thatisand exacerbated isindiscriminate particularly potential by randomof fellingproblematic the vegetation; ofand trees uncontrolled in that some has areas reducedfires; where plant poor diversity veld AlienPollutionAbsencesome species areas of that properandsuch occurs resulted as environmental the through jointedin the loss cactus management;the of grazinguse and of the andunlined blue productive bush pit that land; have invaded latrines, unlicensed 5.2.2 IDP review process and the prioritisationUnsustainablecemeteries, of needs indiscriminate use of terrestrial waste and disposal, marine and resources. burning of refuse; and stepsNgqushwa's5.1.Preparationprocedures ofThese planning IDPphases andset review outtheAnalysis are inIDP process theassessed processPhases DPLG's for infollowedto2004/5 2001detail be followed, IDPbecausegenerally by theGuide municipalityengaging they followed Pack represent series. stakeholders,the are recommended shown theDetails critical in of Tableand IDPthe Theinstitutionalofdetermining IDPthese is initialpresented and and tasks. finance. ranking in clusters: priority Infrastructure, issues. The stages LED and that environment, follow build onsocial the needs,outcome processTable 5.1. Aspects and outcomes of Ngqushwa Municipality's 2004/5 IDP review (toMunicipal guide the Process planning, Plan Aspect structures:-Municipal Manager responsible for managing the lOP process, which is guided by four Process and outcome reviewdrafting, ofthe adoption IDP) and 4.3.2.i . MunicipalIDPlOP ClusterSteeringRepresentative Support Teams Committee Forum Forum --The ParticipationUndertakingPreparing Municipal the theand processManager overall involvement plan managementhas the of followingall different and tasks:co-ordination role-players of the planning, ensuring:- -provincial That conditionthethe requirementstimeplanning frames for participation process are being is horizontally isadhered provided to and vertically aligned and complies with national and spheres- NominatingEnsureResponding ofproper government persons to documentation comments in-charge to the fromsatisfaction ofof the differentthe results draft of roles theIDP of themunicipal from planning the councilpublic, of the horizontalIDP document alignment and other - ChairingManagingAdjustThe IDP the theSteering consultantsIDP steering in accordance Committee committee with meetings the MEC for Local Governmenrs proposals - ConsiderCommissions'EstablishProvides termsandsub-committees commentsresearch of reference studies on: (if fornecessary). the various planning activities. -* MakesProcesses,Inputs fromcontent summarisesprovincialsub-committee(s) recommendations. sector and documentdepartments study teams outputs. and and support consultants. providers - IdentifiesInformsDefinesPrepares, aboutterms stakeholders facilitates theof reference establishment and to documentsbe for part the ofof IDP thethe meetings. forum. lOPForum Representative in such a way Forum. that the public is well represented Board,associations,committee-IDP Representative SANCO, taxi Business associations, Forum Forum, consisted fishing Advocates of forum,the Mayorof unorganisedPeddie (Chair), Development councillors,groups, community Forum, traditional Peddie representatives, leaders, Pineapple ward chairpersons, stakeholder representatives of organised groups e.g. farmers FrameworkDistrict-level municipalities.-IDPPeddieresource Framework Women's persons, This Support Committee structurelOP Steering Centre). grew ensured Committee, into one co-ordination known NGOs as DIMAFO (Ubuntuand alignment (DistrictWomen's between Mayoral Centre, Forum)local Masimanyane, and consisting district MainthatCommittee.of the require role municipal players specialThis /IDPcommittee in attention. IDP managers, process: monitors Chair the of sub-activities the ¡OP Representative that form part Forum of the and IDP the review IDP Steeringprocess London,departments(Departmental-Municipal residents, Council (DL Heads communities, (consisting of Works, ofstakeholders, councillors),Finance, district municipal municipality manager/mayor, and support Steering providers. Committee DEAET, DHLG, SAC, National Sports Council etc.), PIMMS office, East Administration and IDP Manager), government Aspect process iid outcome -Prioritydevelopmentexisting-Assessment levelissues of of or Key-Sanitation-WaterInfrastructure development supply issueslneeds were listed as: -Informationpotentialsavailableproblems resourceson and -Transportation-Solid-Land-Roads waste related and stormwater issues problemsprioritycauses-Information issuesand dynamics on or context, of -Telecommunication-Housing-Community-Electricity facilities -Agriculture-Manufacturing/SMMEsLED and Environment -Safety-Environment-TourismSocial and needs security (lack of environment strategic plan) -Disaster-Education-HIV/AIDS-Health management -Lack-InadequateInstitutional of clear policies informationskills of municipal dissemination personnel between the municipality and communities -Lack-Reviewing-Inadequate of operationalco-ordination the office IDP equipment project management system place -Inadequ-Poor-PoorlyFinance service integrated ate funding payment financial levels and tomanagementservice deal with affordability backlog system TableTheReview)projects Analysis 5.2. for Ranking Phase2004/5 culminatedof(Table prioritised 5.2). with needs a ranking for Ngqushwa of prioritised Municipality needs that would(2004/5 lead IDP to Priority I AgnculturalNeed I Project development Points 150 1546 s 324 WaterSanitationRoadsManufactunng Supplyand internal (agro-based) streets 1081259496 111314 959.699.90 5768 CapacityCommunityHealth facilities building facilities (Clinics) I skills development 889093 9.029.289.59 Total 10 9 EnvironmentalLand Reform and conservation Housing (Soil erosion control) 9704482 100.004.548.45 5-4 5.2.3 Identification of environmental projects and the allocation of budget 2004/5TablebudgetThe projects 5.3. IDPare showLEDreview. identified andin Fig Environment 5.3. for the LED Cluster and Environment projects and Cluster respective and the budgets allocation in the of Soil erosion controlPnoñty area ac1n Nil addressing- Land Care soil programme erosion especially (soil inconservation Ward 8 works at Nyaniso) aimed at Project 200415 IDP EnvironmentalEnvironmentalPublic awareness protection Action Nil - ProtectionFormationPublic participationawareness of Localcoastal and Environmenton forests environmentaleducation and Actionestuadesprogrammes issues Plan (responsibility to tackle waste allocated management to DEAT) SolidVeldLandscaping managementwaste R750 000 Nil -Committee) EstablishmentProper veld management of Hamburg programmes LandscapingSolid Waste Site project (responsibility allocated to DEAT Urban Revitalisation Rl 300R330 000 000 Nil --. RefuseWasteUpgradingWaste management managementdumping of Peddie sites planningcollectionsolid in all waste villages and services site training study instatedThere DEAT,protectioncoastal isthat a nomanagement, national the ofenvironmental coastal protection department. resources coastal of manager coastal issuesAs or a even consequence forests wereat environmental Ngqushwa not and identified estuariesof a municipality poor resources for understanding inclusionis the in responsibilityto general. in lobby the of IDP. fortheirThe the IDPofrole municipalityinfrastructure.orientedTheEnvironment IDP towardsissue and This Clusterprioritisation the supporting is poorin reflect line state with processa social concern of the infrastructure. high shows over levels veld that of qualityProjects unemploymentmunicipal and identified solid priorities andwaste in poverty theare management, LEDstrongly in andthe livelihoods and the development of basic whichopportunitiesofThe the receivedIDP Municipal review the to process influence totalManager environmental as the (MM).described decision He budget appearsin making the of2004/5 about toprocess. enjoy reviewR4m. a His positionhighlights ideas wherecan the be central therefurthered roleare throughMunicipalrelevant,referenceand consultants. his interpretation andforCouncil) the chairs HeIDP be also SteeringRepresentative poorlyof wieldsinput informed Committeedocuments considerable Forum, on thehemeetings. power reviewsidentifieslink between in Shouldfrom that stakeholders heregulatory economic thedefines MM he authorities thegrowth(and/or considers terms and the of fundingTheMMenvironmental scarcity and of Council environmental of environmentally educationhealth, appears the toprojectsprogramme inclusion be paramountoriented of focusingestuary projects to remedy relatedon inestuary this issues situation. protection into the thatIDP targetsis unlikely. the is evidence of a lack of awareness. An its IDP and the absence of 5.3.15.3 IDP formulationBackground ¡n Great Kei Municipality households)farms.(StatisticsThere are They approximatelySA and are 2001). 10 spread 052 Over people 44 among 81% 469 (1 ofpeople 897 sixthe households)wards people living with inlive Great betweeninresident rural Kei areas, in 4 each11 430 363villages ward. people households There and (835 on is TheanHagapeople. average centres and ofChintsa Komga,6 686 representpeople Kei Mouth per the wardand urban the and coastalareas. an average Thesettlements population household of Morgan density consists Bay, within ofHaga fivethese thesetheTheareas diverse centres. Amathole is estimated economic State at activity of185 the people/km2 Environmentand higher (Statistics level report of social (CESSA 2001), and 2003) physical which described can infrastructure be the attributed dominant in to environmental issues. These are listed below.Waterrivers.Contamination pollution of rivers has resulted in the loss of freshwater eel species from stems from poor sanitation and solid waste disposal. OnlyaquaticandSoil erosion estuaries.21% biodiversity. of andthe This householdsdevelopment increases have pressure runoff, access degradeson to steeppotable slopes, watercourses water wetlands,either on-site and flood reduces or plainsin the Over-exploitationApproximatelysources,dwelling. whichAbout 48% are 56% of oftenof fauna have households polluted. accesssuch as haveto the public orionno access taps, buck, while to monkeys sanitation. 15% rely and on bushbuck, natural water has vigilanceintroduceExploitationlead to theby a local absencefishing of marinelandowners. project of species living so thatHowever resources in areasthey may somewhere is benefit apparently dissatisfied they frompreviously harvesting.under communities occurred. control, wishowing to to 5.3.2 PhasessameTheIDP IDP linesreview O formulation and as processthatI and for details processNgqushwa of the for municipalityRepresentative Great Kei municipality(Table Forum 5.4). are Only was shown. aspectsstructured of process along the for 5-6 TableProcess 5.4. Plan Aspects of IDP Phases O and I Apédtfor Great Kei municipality - Council and municipality considered and adopted the process plan and the final IDP. Proces:aiidôitcome process.-drafting Mayor,Municipal the TheMunicipal IDP. Manager lOP steering Manager was committee responsible and lOP and Steering for municipal managing, committee officials monitoring, assisted.were legally and responsibleimplementing for the managing overall andIDP - The main lOP role players were: ChiefMunicipalCouncil Finance of managerGreat Officer Kei Municipality under leadership of the Mayor a ProvincialAmatoleIDPlOP RepresentativeSteering District Government Committee Municipality Forum departments consisting Officials in andof terms residents, Departments of their communities sector programmes and other stakeholders publicRepresentation participation and The IDP Representative Forum comprised: CouncillorsSupport providers of the sixwere wards PIMMS, consultants and NGOs farmersWardboardStakeholder committee association, and clinics. representatives chairpersons service clubs, of organized Business forum,groups thei.e. differentchurches, political ratepayers parties, associations, hospital consultants.AdvocatesResourceCommunity of personsunorganised representatives. such groups as Amathote such as District farm workers.Municipality, PIMMS representatives and various 5.3.3 GreatKey Keiissues municipality and priorities has no environmental manager. The IDP Steering Committee diagrammaticTheissuesand 2004/5 the and Representative priorities.lOP form summarised (Fig. 5.1). Forum the were key responsible issues and for needsinvestigating of the andmunicipality identifying in key GREAT KEI MUNICIPALITY Key Issues & Priority Needs Municipal Offices - Telecommunication - Capacity BuildingInstitution the Municipality Building How Can Tourism Creat HowJobs? Do We Get Tourists? (Mainly Along the Coast) Tourism CurrentIntegrate Focus on East with London Municipal Transport Emerging Farmers Need Acess to Farmland, Skills, etc Land for Grazing/SettlementAgriculture & Land Skills Development Education and AwarenessSafety & Security Aquire Skills to Achieve Self-employment Marketing Skills & Market Places Infrastructure Police Station has a large area (Mooiplaas)Health & Welfare Services Increase Capacity Fig. 5.1. Key issues and priority needs. Roads for Agric. I Tourism / Health Water & Sanitation Housing Need Local WalfareInadequatePublic Representation Hospital/Home Facilities ¡Medicines for the Aged 5.3.4 theclustersTheGoals environment needs and aligned objectivesidentification to was the notNational generated identified and District asa set a priority, of cluster goals environmental approach.that were Althougharranged management protectioninto a set was of toGoal:recognised manage A municipality theas amunicipal municipal with area sufficientgoal. on a sustainable capacity,Institution skills, basis. and expertise, Finance offices Cluster and equipment programmesGoal: Communities and safety will andhave security. accessSocial Infrastructureto services, Development housing, Cluster Cluster amenities, government Goal:maintained AnThe efficiently municipalroads, and managed areaaffordable will and have water conserved anEnvironment and improved sanitation environment, Clustertransport services. allowing system, the well co-existence built and environmentalof Goal:a multitude Reduced ofneeds other unemployment of human future activitiesgenerations. through onLocal locala sustainable Economic economic basisDevelopment skills so development, as to Clusterprovide access for the to land for emerging farmers and community based tourism growth. 5-8 linkedTo achieve to strategies its vision that of include: a better quality ofBuilding life, the aIDP strong proposed and efficient a set ofmunicipality objectives BetterSkillsFocusing development communications on poverty alleviation and public and relations HIV/AIDS IntegratedHousingDisaster andmanagement transport other social planning services EconomicEnvironmentalInfrastructure development programmes management through to address agriculture backlogs and tourism. 5.3.5 A Clusterwide-ranging programmes package of projects was formulated in consultation with the facilitateRepresentative integrated Forum. development. These were These grouped programmesplan,An Integrated into a include: set Institutional of cluster Programmeprogrammes which to addresses the financialperformance plan, action monitoring, A disasteralleviationframeworkSocial management; andfor land gender use equity, management; land reform, housing and social facilities, transport, Development Programme which capacity building and spatial development addresses HIV/AIDS, poverty AAn institutionalandLocal Environmental solid Economic waste arrangements, management;Programme Development agriculture, focusing Programme on tourism environment and which SMME's; management, addresses and education the LED 5.3.6 Projects - prioritisation and budget allocationAnmeet Infrastructure the backlogs Programme and sustain that economic addresses development the provision needs. of infrastructure to rankingsAfterCommitteeadheredForum devising (Tableconsidered to andassisted a 5.5).set projects of the strategies,the criteria processwere focusedto the evaluateby project preparing into projects Steeringessential a set to ofCommittee nodes.ensure criteria Thethat with and Amatoleprinciples weights Representative Framework andwere Table 5.5. ComplianceIDP Compliance Criteria Critena and Priorities Rankin Weight IntegrationSpatialIDP Compliance compliance compliance 235 CostSustainabilityCrosscutting compliance programme complian compliance 352 Strategy SkillsInfrastructure Development Rank 2 1 TourismAgricultureSport & recreation & Land 543 environmentalAlthoughThis ranking environment and management prioritisation was notis lead critical a priority to the to the proportionalstrategy, survival the of allocation IDPtourism recognised andof budget agriculture, that to effectiveprojects. seen SafetyHealth and Security 67 wastecemeteriesmunicipality.toas addressthe material,backbone environmentalin Examples floodand of exploitationthe plains, municipalof environmental dumpingissues of economy.natural and of hazardousresources.anticipatedissues lt also were acknowledged waste assistancegiven and as the effluent, a fromestablishment the burning District of lack of capacity ThreeTableenvironmentallyone projects 5.6. LED were and related identified Environment projects in the was Droiects LED minuscule and in the Environment compared2004/5 IDPspecific toCluster review that for (Table LED projects. 5.6) with to environmental management. The allocation of funding to EnvironmentLED and A localLED economic and skills development agency implementing ProjectP;: costsR100R2.9 m(over000 capital operating five costs years) Budget famiersAn DevelopEnvironmentalactive on and identifiedcommunity viable Management landagricultural based by 2006 and Strategy programme eco-tourism (project) for in emerging Great Kei R7.6Rl 00 m000 capital over coststwo years 5.4 IDP processes in Buffalo City Municipality costsR750 (over 000 five operational years) 5.4.1 whichcountryTheBackground municipal 80% and live the areain second urban/pen-urban is 2 largest400 in the areas province. and 20% There in rural are areas.about 880Industrial 000 people activities of km2 and is the sixth largest metropolitan area in the indictate informal settlement settlements. patterns. A major With influx the shortage of 400 000 of formaljob-seeking housing, migrants a fifth isof expected people live in 5-10 wardoccupythe councillorsnext and 20 years.tribal (Municipal trust Land land. tenure Demarcation The includes municipality Board freehold, is2005). arranged quitrent, in communal,45 wards that permission support 89to transportEnvironmentalRiverLarge valleys,scale and engineeringdevelopment issuesgulleys, include steepservices. in BCM (from slopes is CES limited and 2003): separateby the absence catchments of large are areas constraints of flat land. for UncoordinatedThereBCM coastlineis good potential isdevelopment close for to tourism, pristine and recreation ininappropriate some areas and conservation. landand over-utiliseduse have resulted in others. in Manyvegetationsettlements,environmental by-laws, and policiesillegal dumping. and procedures are outdated. erosion, degradation dune denudation, as has deforestation, pollution of watercourses,expansion of informal alien funded.TheDeficienciesPoor municipaldata to existsupport disaster ¡n managementmunicipal management decision-making. structures. centre is poorly resourced and poorly WaterTheformalThere most operatingispollution potentialcommon controlsites formin withwaste ofand nowaste managementmonitoringformal removal hazardous isis availablepitfor burning.sites.waste in reduction. East London There and are King six 5.4.2 IDP review process and the prioritisationWilliam's ofIllegal needs toxic Town dumping only; air in pollution Dimbaza control and King in East William's London. Town. comm.).Thereceivedorganised IDP Review substantial process process that funding lead for 2004/5to from a well a (aspectsdonor structured agency are IDP. in for Tablelt thisis worth review5.7) noting shows (Maritz that a well pers.BCM IDPTable Process 5.7. Plan Aspects of the 2004/5 IDP Review Aspect -areas/priority issues,StrategicFive objectives Integrated workshop and Working strategies, reviewed Groups related pressure were programmes pointsestablished in the and tolOP keyoversee and performance budgeting the revision indicators.processes. of key performanceOutcome Prèss and outcome performanceinformed the Integratedareas,RepresentativeIntegrated and Workingrelated Working objectives Groups Forum Groups and approved and set revisedstrategies. the thedirection the Process schedules for Planthe lOP forthat the Review guided IDP Review200415.the review 2003, activities. which identified Also reviewed key -reviewwork RepresentativeProject produced the Prioritisation process by Forum the to prioritiseIntegratedWorkshop approved capital Workingbrought all amendmentsexpenditure togetherGroups, anditems.resolutions in draft endorsed Methodology lOP on Review. the service review informed delivery process. budget and the finalisation. need to Municipal Revitalisation finalisation30 1.public Effective meetings process. Organisational attendedSeries of byManagement Public 5 500-6 Presentations 000 people. wasAll valid undertaken. comments Draft were IDP taken Review into andaccount draft inBudget presented to Plan - programmes 2. Customer Care ImprovingFinancialService Improvement Management Health EnvironmentalRevitalisation Management Plan Aand Sustainable the GrowthPlan) sustainable andCity Incomes(links development with (most the Spatialof critical Buffalo Development of City.all seven programmes,Framework initiative and is andcentral the toIntegrated the success of the legislation)requirementsSector plans (toof sectoralmeet - Buffalo City SpatialPublicHousingDraft Transport Development Strategy Buffalo Plan City Framework Water Services Development Plan --. LocalInputBuffalo fromEconomic City the Integrated Integrated DevelopmentMdantsane Waste Environmental Urban Management(LED) Renewal Strategic Management Plan Programme Initiatives Plan AtheThe (Tableproject IDP Revitalisation review. 5.8). prioritisation Plan exercise and the by Sector the Working Plans served Groups as generated the principal priority informants weightings for Table 5.8. PrioritySpatialTheme and ratings Infrastructure for projects Priority rating for project prioritisation 50% EconomicFinanceEnvironmentalSocial and institutional 30%12%3%5% toThe environmentalSDthe importance unitprofile and of the the ofand Amenities environmentalSustainable coastal management.Department, City issues programme, were both givenof whichand fair the are recognition role well played capacitated probably by the IEMin related terms andTotal of 100% 5.4.3 environment;areasTheObjectives, Integrated and related strategies solid Working objectíveswaste and Groupmanagement; projects and for strategies. the Environmentaland water, Three soil priority andCluster airareas pollution.reviewed were For the 2004/5, priority recognised: theto capital an environmental budget for themanagement cluster was project R27 288 (Table 558 5.9). of which R650 000 was allocated 5-12 Tableproject 5.9. Objective and strategy leadingIssue to a single environmental management (jestive St.rtegy Project 2004!S finding The IntegratedenvironmentuseSustainable of theCoastal Management Plan (ICMP) is currently in draft form. The plan withinsustainableenergyTo establish Buffalo efficient environmenta Citysafe, and healthy, (IEMP)ManagementIntegratedFormulation Environmental and Programme adoption of an projectCoastal Zone R650 000 Estuaryliterature.uptheproposes management municipality. Management action These forguidelinesThe guidelines BCM EstuariesPlans aimed for for need 23 individualActionat estuaries achieving to bePlan consolidatedsystems based is sustainable a component on that recommendations are through use worked of of the coastal the ICMPthrough compilation resourcesin and published Estuary draws inof 5.5 Inclusion of estuaryprocess.Management related Forums projects that allow into localIDPs stakeholders - what are tothe contribute key factors? to the management consequentlystretchThisBuffalo assessment from City thethe Municipality Greatmost focused estuaries Fish on River hasthree (Table thein municipalities the longest5.10). south tocoastline thethat Great lie alongsideunder Kei River its each in theother north. and jurisdiction and TableKei Rivers5.10. Lengths of theMunicipality municipal coastlines between the Great Fish and Great Extent Coastal length (km) Number of estuaries estuariesImportant are GreatBuffaloNgqushwapermanently in good Kei City condition. open Almostestuaries all arelie under pressure from development and KweleraKeiskammaGreat -Fish Great - -Keiskamma KweleraKei Rivers Rivers Rivers in all three municipal areas and most 386840 132012 Sincesystemsimportanceinflowmany (e.g.local have Fish, andpeople value showedKeiskamma, and benefit need some mostappropriate Buffalo, to frombe more Nahoon, estuaryprotection. conservation Gqunube,goods and worthy Kei) services, experience than others, andmodification. waterlocal Although Turpie et aI. (2002) ranked their conservation all shores,sensitive,activelymanagementmunicipalities estuaries,seek vulnerable, ways have and wetlands, to jurisdictionplanning highly sustain dynamicand procedures,estuaryover similar local or goods stressedmatters,systems especially and the ecosystems, requireservices. onus where isspecific on NEMA they thesesuch attentionare statesauthoritiesas subject coastal that to in legallyAlthoughestuariessignificant prescribed isthe humanthus three a legal IDPmunicipalitiesresource procedureobligation usage whose for(as andall per regulatory IDPsdevelopment the Municipalwere authorities. assessed pressure. Systems generally Act),The protection thefollowed priorities the of comparisonand projects (Table that emerged 5.11) highlights from the the process core features. were significantly different. A tabular 5-13 Table 5.11. Comparison between the core features of the IDP process of Ngqushwa, policyDefined environmental Buffalo City and Great Kei municipalities Feature Ngqushwa No writingdevelopmentNo (poticy this underreport) at time of BuffaCity Great Kei No as Environmentala municipal function management No Environmental Manager. DevelopmentandIntegratedYes. Sustainable Strategic Environmental Unit Head (IEM of & incumbentcreatedManager.No funconaI and Post does filledEnvironmental has not but been perform operationalAmenitiestheSD) Municipal who reports Department coastal Manager. directly has to this task. addedEnvironmental on to existing management Added on to an existing post Department&No.management SD Integral and Amenities partfunctions. capacity. of the IEM functionManagerRole of the Municipal anyappearsHas environmental influential to experience position lobbying, little and if theandTakes AmenitiesSD direction Unit and Dept from the Headthe IEM of ifappearsHas any influential environmental to experience position andlittle Environmental capacity of NGOs.environmentalNo specific capacity. or related No AmenitiesTheUnit Head and Departmentof the IEMHead &lobby ofSD the environmentallobbying.NGOs.No specific orcapacity. related No StatelOP Representative of the Environment Forum AmatholeNo, although District there SoER is an that Yes.coastalforEnvironment State issues. of the Report, State of environmental and AmatholeNo, although District there SoER is thatan Reporting (S0ER) oncould general inform issues. the municipality IntegratedStatethe Coastal of Sanitation Environmental Zone Report. Report. Environmentaloncould general inform issues. the Management municipality AwarenesscoastalCurrent projects environmentalof legal or Poor. lOP stated that coastal None Excellent.Managementand Integrated Highlighted Plan Coastal (ICZMP)(IEMP) in the Strategy environmentalRankingresponsibilities of environment in areas.Ratedresponsibilityforests Votesnumberand estuaries 4.54%.of 10DEAT. of 10are priority the AwardedRankedIEMP and 3 12% ICZMP.of 5 ofpriority votes. areas. NoNot votes. listed as a priority issue. Unknown EnvironmentalissueMost importantprioritisation management municipal process (15.5%Agricultural of votes) development None (50%SpatialDevelopment of and votes) infrastructure of an IEMP (rankedInfrastructureEnvironmental 1) development Strategy for AwarenessenvironmentalBudgetprojects allocated in lOP of value projects to of Poor - deduced from the None RlDevelopment 2m over 3 ofyears an ICZMP PoorGreat - Kei deduced from the Rl 00 000 supportExtraordinaryservicesenvironmental IDP fundinggoods and to theabsence list of ofpriority the environment areas in None supportedSignificant thefunding. development SIDA Good inabsence priority oflisting the environment None municipalitiesComparison between (lmost 3 of the IEMP and ICZMP 1 2 aware, 3least aware) ofcomplexThe importance. inclusion interaction of environmentally between several related factors. issues These into are municipal described lOPs below is related not in order to a 5-14 5.5.1 AlthoughAvailabilitythatguidelines, can be the theseimplementedof guidelineIDP are Guide strategic documentsby Pack local and municipalities.(2001) need to does be translated Theprovide absence into ofarea-specific specific guidelines actions localised environmental outlineactivities.leadconsultantsleaves to municipalities theinadequate Consequently environmental that often environmental individually support there requirements themis aresponsible need incriteria the ofto IDPan develop to forIDP process. guide drafting and national planningprovide Insufficient the guidelinesterms minimum and ofknowledge development reference that standards clearly can for municipalities21Thethat principles needpathway to be described tometand investigate for activities IDP by approvalUrquhart and into consider the(CS and IDPIR Atkinson specific2004). process (2002)environmental is ato good integrate startingissues. Local There point Agenda are for protectingSDFs.Guidelinesthealso lOP several Useful process are environmental guidelinesneeded by assisting on shouldresearchhow municipalities to includeincorporate initiatives the to currentlyidentify thesefollowing: priorities their underway conservation into that IDPs can priorities.and feed even into key coastal ecosystems and biodiversity; legal requirementsprinciples for of coastal 5.5.2 AnorganisationAbsencedatamanagement, environmental to support of a inconservation definedthese broad policy processes environmentalterms presents planning and (CSIR the acts and 2004).approach,policy asLA the21; andframework priorities an outline andto of guide localintentions managementinitiatives of an and environmentaltheandprominentlycommitmentdirection five policy coastal and provides into action.policymunicipalities an address IDP theltalthough reflectssince corethese in environmentalguiding an thattheissues. awareness Amatholeof statement. BCM Environmental issues was ofdistrict, environmental Atin cuttheprogress none policy acrosstime had of should (Alan issues allwriting yet municipal formulated Carter, beand this showcased the report, sectorspers. level an ofof 5.5.3 hoc,MostMunicipalandcomm.). if init Easternoccurs its Policy absence, environmental at developmentCape all.. environmental municipalities management is likely management to are follow capacity without from is aan bound post awareness (or to beeven reactionaryof legala shared obligations and post) ad inclusioncoastal)dedicatedManagerprecede ofissues tothat priority(EM) environmental of in wouldCoastal environmentalthe IDPplay Manager). processamanagement central projects A androle well into his in (postcapacitated raising theenergy ofIIDP. Environmental the is and profilecritical motivated of for environmental Managerthe Environmental successful would (and 5.5.4 thedelegated),supportWhether ManagerRole offor aan environmentalfull creates theEnvironmental or economic shared of legal initiativesEnvironmental value Manager responsibilities of will environmental depend Manager (once to a largeportfolio, goodsthese extent andhave achieving onservices, been the awarenessformally municipal and the budgetlOPinterestservices.potential development. allocations groups impactTo further are of toThemunicipal includedsupport priority commitment environmental inactivities the IDP and and Representative energy projects.thoseinitiatives, ofof thecivil the EM Forumsociety EM is vitalshould during on for these ensure thethe goodssuccessprocess that and key ofof 5.5.5 Awareness of legal responsibilities delegationandconfusedmunicipalitiesWith DWAF,no formal about of provincial responsibilitydelegationare the unsurerelative authorities of ofresponsibilities environmental through their andlegal a theco-operative coastal responsibiJitiesof role national of management the processdepartments, district from municipality. national duties. such agencies, Theyas DEATClear are is a fundamental Committee,butmeasuresrequirementlOP mandatory. process to Cluster toprotect impressThisi.e. teams naturalawareness on and municipalecosystems, Representative needs decision to includingbe promoted Forum. makers estuaries, Legal amongthat inclusionobligations is all not role an intoplayersoptional also the present IDPin extra the of Municipal Manager, Mayor, Municipal Council, lOP Steering 5.5.6 Awareness of the link between environmental health, socio-economicenvironmentaltheand the wellnessfunctionality concerns. of management institutionsimperatives for encouraging a cross-sectoral approach to dealing with TheandMunicipalcostof lowawareness servicesto priority the decision quality naturalofof thethe of makers environmenthumaneconomic systems need life providevalueof to inslow bemost of made but tonatural Amathole the systematic aware communities systems municipalitiesof degradationthe and need they the to monetaryserve. indicatesofprotect these The the systems. costa criticallackgoods and municipalitieseconomicdeterminesuponfunction decision of municipalitiesbenefits the should makers.way ofnatural be these asemphasisedThey effective systems systems should management areto understand topolitical managed local communities.role institutions whichhow players their in needs turnespecially style The affects to andpivotal be councillors impressedefficiencythe rolesocio- of 5.5.7 Developmentprocesses,ToandCommunication mainstream the Mayor there whoplanners biodiversity should betweenare often and be involvedmunicipal goodconservationand conservationcommunication in strategicsectors planners decision-making. between need to all understand municipal sectors. the key issues into municipal planning relationships.Achievingenvironmentalshouldprinciples also and real extend processes understanding to other used sectors inneeds each such broadother's as watertraining fields services (CSIR that focuses2004). development, This on cross-sectoralunderstanding sanitation, health, waste management and local economic development. 5.5.8 ManagementSouthernSpecialInclusion environmental ofAfrica, environmental Forums, Marine interest and Working special various groups Group interest Friends (e.g. of groups Wildlifethe groups) East and Londonplay Environment an Museum,important Society Estuarypart of in dothemunicipalRepresentativehighlighting so. opportunity Environmental specific toForum participate needs is Manager the and platformin raisingthe should IDP for the process ensurethese profile groups andthat of environmental interestthey to engageshould groups bethe issues. areencouraged process. informed The TheIDP toof 5.5.9 forguidingSteeringIn Influence Ngqushwathe IDP and Committee Representative ofmanaging Municípality,the Municipal (seven the IDP Forummembers forManager process. example, meetings, including and The the IDP Committeeconsiders Municipalthe Steering MM) and havesets CommifteeManager comments thecentral terms (MM)roles onof referenceinput toand play fromIDP in sub-committeesmeetings and is andalso cana member recommend of the Steering research. Committee. The Mayor The chairs MM and the Committee Forum 5-16 environmentalare thus in strong (coastal/estuary) positions to influenceissues to bethe addressed outcome ofby the the IDPmunicipality, process. For it is 5.5.10 Supplementary funding resultobligationscritical from that insensitivetheand MM the andthreats human committee to activities. environmental are informed health on the and municipality's 'economic growth environmental that can wasmunicipalityto IntegratedBCMimplement the has only recently isCoastal municipalityan well Integrated ahead received Zone of that ManagementEnvironmental itssignificant receivedpeers in donor terms financialPlan. Management funding ofIt isnatural support). therefore to supportresourcePlan Efforts not and itssurprising management SystemtoIDP improve process andthat the anthis(itand 5.5.11 District municipality leadership ManagerLocalcapacity municipalities of look lesser to themunicipalities district that either municipality will have need or adequate for are guidance without funding. inthe terms post of of sector Environmental planning. withinitiatives.EnvironmentalanDistrict districtimportant municipalities plans. role and Districtto playCoastal are in environmental in ensuring many Management cases that core managementahead Plans) sector of theircan plans strategiesinlocal areeffect counterpartsdeveloped lead (e.g. local Integrated and andplanning aligned have importanceordinationhorizontalmunicipalitiesDistrict municipalities androle of andthe verticalto EMplaybetween shouldin alignment).between ensuring national also municipal co-ordinatethat DIMAFOenvironmental the Mayor tiers, (Districtpolicy is which regulatoryinformed and Mayoral furtherstrategies about bodies Forum) emphasises environmentalbetween (i.e. has promote alocal theco- 5.5.12 Role of provincial and national government Mostinvolvementissues. Amathole of the municipalities district Environmental for example Manager are poorly in local informed municipal about activities. the division ofIn the Amathole district, limited manpower and capacity restrict the aboutthereenvironmentalrespectiverole, is legal responsibilitygenerally mandates. obligations. responsibilities a willingness also Although There lies withtoappearsbetween addressthe provincial onus to the environmentalbe is different a onand serious the national local tiers lack concerns, municipalityof governmentof government. communication there to isto identifyconfusion Althoughclarify between theirits 5.5.13 Mentorship Well-capacitatedof levelsnatural of resource government, and use. relatively which is hamperingwell-funded efforts municipalities, to find and such maintain as BCM, optimum that levels are suchinitiativescapacitatedbusyIf coastal asimplementing BCM should municipalitiesmanagement are be in identifiedkey a position environmentalthrough is toand tobe a co-ordinated supportconstructivelyeffective 'Iesser in optimisingalong designed municipalities the coastline. mentorshipresource and Municipalities use, programme.take common a lead projects should actively support less 5.5.14 State of the Environment Reports concern.Knowledgeposition in Coastal setting of the themunicipalitiesstate trends of coastal and inencouraging resourcesthe Amathole canbest districthelp practice. identify (with theand exception prioritise issuesof BCM) of andhave the little level understanding of local community of the state dependence and economic on value these of resourcestheir coastal (Arcus resources, Gibb 5-17 direct2005b).report action BCMthat towill is protect theinform only the its municipality Integratedhealth of coastal Coastal that has ecosystems, Zone produced Management particularlya State Planof the estuaries. (ICZMP) Coastal Otherand Zone wíll 5.6 ConclusionAmatholereport (CES municipalities 2003) that describesare dependent coastal on issues the Amathole from a district State perspective. of the Environment relatively2005b).localagriculturalenvironmentalJudging municipalities Thefrom high development, only the issueson content exceptionsinits the IDPare Amatholeand of largelyagenda the manufacturing. are lDPs overlooked BCM,District ¡n of2004 Greatwhere of theThisand in Kei favourenvironmentalEastern isresulted andthe of caseNgqushwa Cape infrastructure, in for the (Arcus managementalmost development municipalities, Gibb all skills the 2005a, eightandwas of tosingle2005a,whichintegrated environmental ismunicipality 2005b). currently environmental The implementingmanagement has general yet anddeveloped neglect coastal itsand EMP/S layofan management environmental environmentalthe and foundation ICZMP plans finalisedissuespolicy for (CES management to has in guide 2005),2005 meant the (Arcus and thatapproachactivities ADM, notGibb a There(SCM'sequatedofin theformal are isEastern currentlymany to delegation reasonsCape. being The of forprepared). responsibility rootpoor causes municipal are from environmental complex national and government. relatemanagement in part toThisperformance the could absence be a "catch-22" situation whereby municipalities are not delegated co-operativecreationbecauseresponsibilitiesgovernment of they an that Environmentalhave because included not beenthey financial Manager havedelegated andno manpower(EM) capacity responsibilities, post buildingwithin to exercise their support they municipal the do functions.where not structures.support necessary In turn, the A governance agreement between national, provincial and local thereabsencewouldOnce will be a of beamunicipality municipalpositive a champion step capacity. has towardsto created drive addressingthe and process adequately the of developingconfusion filled either over an a environmentalfull obligations, or shared andEM policy thepost, particularmanagementenvironmentalmunicipaland integrating those sectors. the issuesenvironmentalposed EM Vigorous is inby unlikely municipal andconcerns to sustainedbe activities aware into theofthemselves.campaigning the planning threats processesTraining facingwill raise estuaries on of thea thecontinuous profile various and inof general. However without specific training in coastal constantoccasionalwillbasisannually encompass is essential movement until training EM a to broadposts maintainofworkshops municipal areenvironmental filled,the forstaffmotivation stabilised local these portfolio.municipalities andworkshopsand coastalreflect National adequateneed focusin the governmentto of regionbe thecapacity. repeated EM but whose haswith at heldleast rolethe themunicipalmanagementIf case (Arcus zones intentions, Gibb incorporating 2005a, they 2005b). municipalitiesshould units Withaboutnot be the 50km left areEastern to long, tooperate play Capeit makes ain pivotalcoastlineisolation, little role sense asdivided currently for intoeach is in achieving government's coastal equippedmunicipality to focus solely on its own relatively short stretch of coast. Better municipalities must co-operate 5-18 with 'lesser' ones to co-ordinate governance,guidingpolicy.requiresmanagement these commitment a under-equipped cornerstoneefforts, from share all of experiences tiers nationalmunicipalities of government. environmental and is promote however This isand bestthe a coastal jointessence practice. undertaking management of Upliftingco-operative that and 6 INTEGRATED DEVELOPMENT PLANNING IN ETHEKWINI 6.1 WITHMUNICIPALITY, ESTUARYIntroduction MANAGEMENT KWAZULU-NATAL, AND ITS RELATIONSHIP ThisinvestigateDevelopmenteThekwini chapter and Municipalityprovides Planningdescribe an theinprocessinsight KwaZulu-Natal following: into within estuary theCoastal and municipality. planning highlights management and Thelinks management specificwith policy the withinaims Integrated within are the tocontext of the legal responsibilities of FocusmanagementInstitutionalmunicipalities; structure functions and within specifically the municipality; the position of environmental and coastal of EIPs (Environmental Implementation Plans), Environmental termsStructurecatchmentManagement of projects) of issues); the Plans IDP on inissuesand terms CMPs thatof specific (Coastalcan impact clusters; Management the health Plans/Programmes)of estuaries (include (in Theprojects;projects roleprocess of and the oftheir environmental prioritisation inclusion into or lDPs;coastal manager in prioritising estuary related of environmental (specifically coastal/estuary) 6.1.1 Defining estuary management ThelOP. factors that determine the success of inclusion of specific projects into the managementinteractionsEstuary management withactivities estuaries. are: refers Some to a suite of the of Establishingbroadactivities actions that estuary aimthat managementtoconstitute manage estuaryhuman policy; MonitoringEstablishingPromoting co-ordinationthe plans impact for ofestuaries activitiesof activities or on the impactingestuaries; land adjacent on estuaries; to them; impactIn addition on estuaries. there are These management management actions actionsTaking to control would action specific aim to maintain to control human the the activitiescondition following: thatof estuaries. activitieseffluentabstraction disposal that changeof water into ansediment from estuary an estuaryloads; and/or and/or its catchment; its catchment; dredging; 6-1 mouthharvesting manipulation; of living resources; developmentnon-consumptive onof structuresthe recreational banks thatand use; encroachin the catchment. on the water body; and 6.1.2 peoplecoasteThekwiniBackground of living KwaZulu-Natal. Municipality withinto eThekwini a municipal is The a Municipality large municipality area well-resourced of 2 297 has km2 a population municipality(eThekwini of Municipality, aroundlocated three on the 2004a). million east AlthoughMunicipality,(R2.2locatedapproximately b the withinon municipalcapital 2004a). aeThekwini's third expenditure ofarea the makes borders.province's and up TheR8.5only population 2004-2005 1.4% b on ofoperating and the municipal 60%total expenditure)ofarea its budget ofeconomic KwaZulu-Natal was (eThekwini activity > RIO isb 6.1.3 2004a).TheeThekwini municipality These estuaries estuaries has 16 estuaries are listed along in Table its 100km 6.1 from coastline south (eThekwini to north together Municipality, with Tablesome information6.1. EstuaryEstuaries on their status (Whitheld 2000). Classification in eThekweni municipa!ty and their status Information Condition NganeMkomaziMahlongwanaMalìlongwa TemporarilyPermanently open/closed open/dosedopen estuary estuaryestuary ModeratePoorPoor GoodFairGood LittleLovuMsimbaziUmgababa Manzimtoti Temporarily open/closed estuaryestuary PoorModerate PoorFairGood DurbanSipingoMbokodweniManzimtoti Bay EstuarineTemporarilyModified bay permanentlyopen/closed openestuaryestuary estuary GoodModerate FairPoor The estuariesTongatiMdlotiMhlangaMgeni are subject to diverse levels of human use. At the extreme is Durban Temporarily open/closed estuary ModerateGood GoodFairPoorFair suchdevelopment,SouthalsoBay that examplesas Durban Umgababa. supports such ofBasin highlythe as port industriälManzimtoti, modified of Durban and and and impacted estuaries is the centre estuaries, located of economic in such less asurbanised activity.the Sipingo Theresethngs, in arethe area, estuaries with high levels of residential 6.2 InstitutionalroleGrey arrangements in boxes coastal in andeThekweni's estuary management organogram (Mather (Fig. 6.1) pers. show com.). the components that play a City Manager GO Audit personOmbads GovernanceIntemutional relationsdi Deputy City Deputy City Deputy Coy Deputy City CityDevelopmentSustamableManager Enterpeis & es InfrastructureProcurementManager & SocialHealth,Manager Services Safety & GovernanceManager ResourcesHumanCorporateManagerDeputy City & ManatierTreasuryDeputy City City Enterprises anitation'alcr& ServicesEmergenep Regional ManagementorganizationalServices di FleetCity BusinessSupport SolidCleansing Waste & Health AdmmCity Hall & LegalDevelopment Fmance PlanningDeveloprnenl & Procurement Secretariat HumanServices Real MarketsMmtageonent Eiigmeecmg &CultuinLásuee SupportdiParticipationCommunity Action SkillsResources Estate flconemic Des TransportHousing Metropolitan Commtarication Developmrn & Facilitation ElectricityAuthority Fig. 6.1: Organogram of eThekwini Municipality Police SafetyHealthOccupational & whodedicatedGeographic serves as coastal the Information Project management Executive: and Policyoffice Coastal and Office Policy.only (GIPO): a singleThe Project Currentlystaff memberExecutive there in (PE) GIPOis no -j TocommentCurrentlycommentscoordinates promote by he otherco-ordination, onis and developing iterations departments. leads ofthe a the municipal PE IDP has through established coastal interactions strategy, and chairs whichwith an involved iseThekwini open staff. for coastal management efforts, and contributes and etc.)withandmunicipalCoastal provincial otherthrough Working componentsmunicipal thegovernment GroupCoastal components and that Working departmentsexternal includes (e.g. Group.stakeholder relevant Environment and HeNGO5). staff also groups members hasDepartment,The (e.g. informalPE relevantinteractsfrom Engineeringanda variety nationalformally ad hoc of Planresponsiblecommitteemunicipalitycontact itself. with offor onthese the the the Provincial drafting componentsProvincial and Coastal Coastal review as the Committee. of Committee needthe municipal arises. Other and TheIntegrated on sections thePE Estuariesrepresents Development of GIPO Sub- theare allDevelopment development Planning planning and and Management: management and, This as component such, defines is responsible the framework for 6-3 forandParks,ManagementEnvironment current the Leisure recreational and component. futureDepartmentand Culture: use development of these Thisalso componentareas.falls on under theIn particular coast managesthe Developmentand it manages publicalong openestuaries. recreational Planning space Theareas anduse WaterEngineering:whichon beaches and is a Sanitation: significant and The open coastal Thisinput areas componentintostormwater linked many to eThekwiniestuaries. manages and catchment estuaries. water usagemanagement and wastewater, component Anis overview presented of in specific Appendix estuary 1. managementandis activitiesbased is involved within and inthisresponsible estuary section, mouth whichcomponents management. manages stormwater and coastal engineering 6.3 DevelopmenteThekwini planning Municipality has adopted a 'package of plans approach' (Fig. 6.2). The a'packagemunicipalspatialshould higher expressionbe level. ofdocumentation noted plans' Lower that ofis a the levelthe hierarchical Integrated asSpatial plans a component provide Development structureDevelopment greater of theand IDP.Framework detail allPlan plans (IDP)for shouldspecific and(SDF) isconform areas. reflectedis effectively to inplans some the at However it Long Temi Development FrameworkIntegrated Development Plan Spatial Development Framework Spatial Development Plan Local Area Plan B Precinct I Special Area Plan 4 o,o Fig. 6.2: eThekwini Package of Plans Land Use Schemes 6-4 6.3.1 Long Term Development Framework 6.3.1.1 are"qualityThe (eThekwini, Long of Ternlife" cityOverview Development2004a): by 2020 (eThekwini, Framework 2004a). (LTDF) The outlines three corea vision elements of eThekwini of the LTDF as a The LTDF framework emphasises sustainabledevelopingstrengtheningmeeting basic development people theneeds economy skills and technologyindicates that base the for the future 6.3.1.2 societynaturalmunicipality to environment. ensure mustLinks that 'balance to all estuary development the management social, occurs economic within and the environmental carrying capacity needs of of the our contributingassimilationeThekwiniThereroles is in no the economy)explicitto service), theeconomy overall link and tothese (e.g. visionestuary in meeting Durbansystems of management.the LTDF. basic Bay clearly isneeds the Howeverhave location (e.g. an estuaries asimportant of estuaries the Port perform role play that to importantadrives play waste in the 6.3.2.16.3.2 TheIntegrated latest version DevelopmentOverview of the eThekwini Plan IDP was published in June 2004 for the 2003 to 2004a):2007 period (eThekwini, 2004a). This versionQualityEconomic has living eight development environments; focus areas and job(eThekwini, creation; SafetyEmbracingHealthy and and security; cultural empowered diversity; citizens; FinancialLocalSustaining government viability the natural and democratization; sustainableand built environment; development. TheStrategicaoutlinedaddition stronger IDP does thatkey programmeslink isperformancenot betweennot identify linked the have tospecific areas IDPstrategic been programmes have projects identifiedprogrammes. been and adoptedand for only the each The municipalafor broadnext focus each IDP budget strategicareabudget. iteration (Table allocation programme. is to6.2). reflect is In Focus Areas TableeThekwini 6.2. Focus IDP areas,(eThekwini, strategic 2004a). programmes and key performance areas as outlined in theKey Strategic Key Performance Areas Economic NewProgrammes business i . Manufacturing sector support i 5. Markets anddevelopment job creation existingManagingsupportinginvestment business public && growing realm programme4.3.2. PrimaryTourismAffirmativei . Informal sectorsector procurementeconomy supportsupport 9.8.7.6. MarketingSpatialLocalAdministrative business Economy & Branding services support centres environmentsQuality hYing needs3communityMeetingbasic needs & maintaining service servicesI2 Supply Housingi of withcommunity services facshties deliveryCouncil & housing stock i 3 Cleaning & greening243 ServiceInfrastructureOperation backlogs1 & maintenance Maintenance2 securitySafety and DisasterSecurityInformationCitizen Management safety Safety & I Disasterdissemination2.I . ProtocolRoad Recovery4 & pedestrian for Municipal safety information ; 2. Crime prevention cItizensempoweredHealthy & Well being of citizens including2.i Pnmary Communicable TB,health HIV care &diseases AIDS i 5.4.3 EnvironmentalIndigenceVulnerable Programme groups Health5 HealthyBridging employees the skills gap I.2.1. EmployeeI-IIV/AIDSOccupational skillsProgramme health development & safety ii: 3. HR2. Community Policies action support naturalSustainingdiversityculturalEmbracing and the maintenanceDevelopment of andSDJ& 2.ii. SDFISDP6 SportArtsCoastal & Culture development& 44.3. EMAMuseumsPreservingmanagement environmental our pIan8 Heritage services LocalenvIronmentbuilt AccessibilitySDPgovernancePollution Minimisation & 2.1.3.managementT PollutionCustomerTransport1. Communication Control1 pIanninservices ¢res marketing (CSC) 6. [UM5.4. NEPADInfrastructureNational System1 & provincial plan9 interface democratisationgovernment municipalityEfficient & effective 2.3. E-GovemmentE-Govemance1. Municipal court . 3. Workflow engineering Accountability i. Ombudsperson i. 5. Knowledge management Leaming organisation 4.3.2. PerformanceAnnualBathoSystem1. Audit Pele report - PeopleManagement First I 8.7.6. SisterAreaThe city based City as programmes the management centre of learning sustainabilityviabilityFinancial and ExpenditureIncreasingStrategic budgeting revenue 2.1.i.Expenditure Seek ValueCostSustaining alternatesaving for money Framework the measures sourcesMedium ofTerm funding i 2. TighteningStrategic3.IDP Growing budgeting credit revenue control alignment streams to As sewerage and wastewater are regularly disposed of in estuaries, estuaries play an important role in meeting basic human 2 Maintenance of PollutionManystorm estuarieswater related and in disasterssanitation eThekwiniwaterneeds have infrastructure provideand relating the wastewater. potential recreational to sanitation.has toan have important services a high toimpact impact the community. on on estuaries estuaries. that act as receivers of storm 8 Estuaries coastalTheEstuaries Spatial development are Development used for and water-based Frameworkmanagemententire municipality recreation and activities the including Spatialand include water Development estuaries. qualityestuaries. needs Plans to meetare strategic standards planning for human instrumentsare health. an important that cover component the of the Environmental Services Management Plan. IO The Land UseStorm ManagementWater water pollutionand System sanitation has will the infrastructure provide potential to oftenhave directa significant the disposal impact of on wastewater estuaries. into estuaries and their catchments. a detailed tool for the planning of development in and around estuaries. 6-6 6.3.2.2 Other than highlightingLink to estuary the presence management of estuaries, the IDP does not make specific thatThedirectlymention thisnext version iterationto of estuary particular will of havemanagementthe IDPestuaries. more is to explicit be (these Howeverreleased reference have soon. abeen number to Breetzkeestuaryhighlighted of managementstrategic (pers. in grey comm.) focus in Tableissues indicated areas XX). and link willincluded identify are various (Breetzke, strategic pers. comm.): projects for developdevelopmentimplementation. and implementguidelines Projects thefor coastal likely zonetomanagement be changes; plans; coastaldevelopmentImplementmanage management and a sustainableproject of estuary the plans); coast coastal management as livelihooda environmental plans programme; (to and be tourist included asset; in the relevant 6.3.3 Spatial Development Framework coastalconsideration water qualityof coastal management. natural areas; 6.3.3.1 theThesectorscomm.) revised Spatial from highlights IDP Development socio-economic(eThekwini,Overview that thisFramework 2004a). plan to the integrates environment. (SDF) forms strategic Thepart broadofspatial the frameworkIDP. strategies Breetzke published in various(pers. in 6.3.3.2 ThelayerSDF.Umgababalevel SDF the Itthat providesis significance important estuaries Linksan overviewto of areto note severalestuary located that of estuarieseThekwini'smanagementone at theof the centre is SDFapparent. spatial of layers important vision. Umhlanga, is the Even nodes environmental at Durban identifiedthis strategic Bay assetin and the provides environmental goods and services. Estuaries and their 6.3.4.16.3.4 Spatialcatchments Development areOverview included Plans within the environmental asset layer (Boon, pers. comm.). theguidanceonplansNorthern,eThekwini various the are land'.on Central, theinlocations.intends theIn nature particular process toSouthern andhaveThe intensity the of SDPsfour completion.and plans separate Outerareof provide development catchment West Spatial The guidance areas. intention Development basedthat The canon of andtheNorthern potentially the preferred the Plansplans municipality and be (SDPs)is land Outersustainedto 'provide uses for West is the in 6.3.4.2 becauseMostinvolving significantly allmany componentsLink estuary SDPsto estuary managementin are the manaqementorganised formulation issues in of terms these originate of plans. catchments. upstream This from is the significant estuary foritself. improved Development estuary management. planning on a catchment basis provides a significant opportunity 6-7 WhilenorthernSDP the is currentlyOuter area isWest toin addressdraft SDP format. has issues been Epstein such through as(pers. broad a publiccomm.) land review usesindicated eitherprocess, that adjacent the the plan Northern to foror withthe theaccessindicatedcapacityestuary potential toset of thatrivers toriversback impact maintaining andlines, and estuariesestuaries. estuaries the protection river are toThe and accept important planof estuarine view stormwaterwill sheds, fortake waterpromoting into biodiversity, and considerationquality waste tourism and riverwater. ensuringand healthcoastal Epstein addressing and publicand also the 6.3.5.16.3.5 recreationLocal Area needs. PlanOverview TheMostofultimatelyHowever purposethe Local local AreaLAPsthe ofarea'. the entire Plans haveLAPSome area is (LAPs)been ofto covered theprovide initiated issuesare toaby moreabe afor LAP SDPinitiated a detailed willfew will cover selected beon response coveredthe are: completion areas. to by 'the a lt number ispeculiar of intended the of SDPs.nature LAPs. that thealignment identification of local of movement local leisureeconomic systems opportunities opportunities 6.3.5.2 No LAPs wereLink available to estuary for review. management Howeveridentification Mather of(pers. conservationdevelopment comm.) indicated areasareas (with(with that moremore detaildetail thanthan thethe SDP)SDP) 6.3.6 obtainedreferredLAPsPrecinct would tofrom (Specialas be theCoastal undertaken section Area) Management on Plan forthe allDraft coastal PlansCoastal areas. (CMPs) Strategy.) LAPs (more for coastaldetails onareas CMPs were can also be 6.3.6.1 furniturecontainuniquePrecinct etc.' or 'highplans special levelsOvervieware character'. intended of detail for These includingareas plans that architectural requirewould be'special at thethemes, attention scale oflandscapes, asa road a result and of streetwould their 6.3.6.26.3.7 Landestuaries.Precinct Use plans SchemeLinks could to be estuary completed management for areas adjacent to or including portions of 6.3.7.1 municipality'packagemunicipality.eThekwini of currently isWithplans' Overviewplanning changes approach, has to a establish intown-planning approaches this schemea municipal to scheme planning is largely wide that andland outdated. covers the use implementation scheme some Accordingly partsthat covers of thethe willthe outline entire zoning municipality and built and form reflects controls. the intent of the various spatial plans. The scheme 6-8 6.3.7.2 Theuses.estuaries. land The use Theexisting scheme Linkscheme toscheme will estuary willapply outline has management to theoften permissible entire included municipality land inappropriate use including and controls coastal land on adjacentand these estuary landto 6.4 Other strategies,zoning.appropriate policiesBreetzke controls. and (pers. plans comm.) significant indicated to that estuaries a revision is likely to result in more 6.4.1 consultedelhekwiniManagementelhekwini Municipalityduring Coastal Strategy the Management formulation (CMS) for of Strategy12adoption the strategy. by Council. The information Key departments outlined have in thisbeen is in the process of finalising an eThekwini Coastal contentThesectionkey initiative performance isto therefore the to strategic draft subjectarea the intention inCMS tothe change. aroselOP of (Mather,the from IDP the topers. inclusion address comm.). ofcoastal coastal The CMSmanagement. management provides detailedlt as is a keytwoandthedocument lopissuesdocumentsBreetzke, will subsidiary arisinginclude pers. with out additional comm.).new to of the theiterations IDP CMSOver details but being timeof reflects onthe there somefeed CMS its isback key reflectingbroadlikely intoprogrammes tointentions. thebe new anlop. thinkingexchange ofThe the next in CMS thebetween iteration IDP(Mather and the of 6.4.1.1 thissystematic,coastalThe unique CMS zone' and 'presents integrated, andvaluableOverview has the the asset' multi-disciplinaryproposed overarching (eThekwini, management aim 2005).organisedof 'protecting, frameworkIn particular approach optimising for it to'setsthe ensure and municipality's out enhancing to that be athe threeTheopportunitiescoastal management different zone boundaries are is area managed,optimised' of the(eThekwini, CMS(eThekwini, protected is the2005): eThekwini and2005). enhanced Coastal while Zone social defined and in economicterms of Ascapes.functioning secondaryprimary management and management feel of the zone coast zone defined includingincludes as the rivercoastal highest valleys, wetlands, area dams of estuaries importanceand activities and to view thatthe theAnutrientscontribute tertiary indirect andmanagement impactsdirectly sediment into the the(orzone rest loss coastal that of of the sedimentencompasses systemcity. by through sand the winning,municipal the movement dams, area etc.).and of includes water, 12 Unless 2005). otherwise stated the discussion in this section is based on Version 4 of the Coastal Management Strategy (eThekwini, 6-9 The vision of the draft strategy is: "To be the leading African city that sets the standard of Tosocial,andmanagement commit integratedeconomic to the for mannerandmanagement the environmental coastal that will zoneof ensurethis asasset resource a theunique in theenvironmentally in andCity. an innovativesignificant In addition the following goals have been defined by the draft strategy: thesustainable economic functioning and social of benefits." the natural systems while optimising A Tozone;Effective,people-first ensure efficient that approach Durban and while transparent continues maintaining to management remain sustainable the premier of the development coastal surf and zone; sandof the destination coastal wildernessTheToin the continue maintenance country; coastal to expand areas; of accessan appropriate to some of balance the best between beaches inthe the built, world; rural and To implement the draft strategy a number of constraintsTostrategicEnsure optimise objectivesthe of socialsustainablethe natural haveand system;economicsupplybeen identified of environmental benefits from goods the coastal and services. zone within the (eThekwini, 2005): BlueCoastalDevelopment Flag Management Rollout and Plan; implementation Units; of Coastal Management Plan's at each of the EventCoastalEstuary Management Recreation/Tourism Management Plans; Plans Development for each estuary; Plan; Coastal educationlegislationand stormwater and awareness;bylaw water development; quality Improvements; SustainableSustainingManaging the Coastaldevelopment supply Livelihoods of environmental in the coastalProgramme goods zone; (poverty and services; relief focussed); 6.4.1.2 Allthese of the are strategic particularly Linksobjectives significant: to estuary link directlymanagement to estuaryCoastal management. structures management However andtwo coastalof engineering. 6-10 approachspecificeachThe(i) Coastal draft of thecoastal strategyin Managementcoastal which area'. highlights themanagement ltcoast is Plans intended isthat managed areas'detailed that to these holisticallygive management effect CMPs byto will theincluding plans present key willcoastal natural, 'abe new developed issues economic,integrated in that for thesocial following: and administrative matters in one managementSafetyBeach cleansingand plan.'security (waste,Each (law CMP enforcement);litter, will organic include debris); EventFestiveEmergency management; season and plans; disaster procedures; CoastalCoastalEstuary infrastructure duneManagement management; management; Plans; AmenitiesCommunityIntegration quality and and stakeholder controlcommunication (ablutions communication between etc); service and participation; delivery units; SignageWaterDocument quality procedure; and monitoring; record and keeping. (ii)areaIn terms plan of for the that 'package area. of plans', a Coastal Management Plan will serveEstuary as the localManagement Plans: health,Theaccountrecreationalplans draft forarea strategy each nodes.' specific of indicates the The environmental estuaries draft the strategy intention and and thereby highlights social'to develop work issues, that towards and eachrecreation, implement ensuring plan should catchment managementtheir take ecological andintotheir role in biodiversity conservation and optimising their value as muststormwater include: management, development potentialfloraMechanisms indicators); and landscape for monitoring values. the The health plans of the estuary (this must include fauna and EmergencyCommitmentCalculation ofresponse to ecological a continual mechanisms; reserves; improvement of incoming water quality; ConservationDevelopmentBreaching policy; plan; of built and form plan; plan.Clear accountability and responsibility for implementation of the management 6-11 EstuaryManagement Management Plan for a Plans particular 'must area'. be integrated into the relevant Coastal 6.4.2.16.4.2 AninEnvironmental eThekwini the process Environmental Overviewof Policy reviewing Initiative thisPolicy policy. was Thefirst discussiondeveloped in this1998. section The Municipality is based on isthe environmentMunicipalityThedraft draftpolicy policy initiative (eThekwini is a coreinitiative and asset Municipality,is setssubject for developmentout to the change.2004b). Environmental andThe growthpolicy's Management and central to optimise message Policy its is benefits, that for the Thecontributedintendedthe municipalitypolicy tooutlines to supportits content.should a Vision the invest implementationfor eThekwini in as: of the eThekwini lOP and has also its protection and management. The policy is aprotectingdevelopmental centremunicipal with it effectively; area a thriving,benefits that strives vibrantgained for economyfrom sustainable the environment with developmentfull employment through - optimising managingthat reflects and a the whichaecologicalbalance place values where between sustainability; its all unique citizens social character enjoy justice a and welland natural structured, well-being, beauty; efficient economic and user efficiency friendly and city placenourishment,a ahome place to live to with peopleand housinga workrich who ecological and and all play; education, enjoy biodiversity, a good and whoquality where enjoy uniqueof life,safe, natural clean resourcesand healthy including adequate and featurescontributionanda place natural are in protectedwhich to environment the all lives peopleand of access generations recognise as anby allessential istotheir promoted;come; role part andin managing of their lives, the integrated and as theirbuilt To give effect to the Vision the policy has six Goalactinggoals: A: proudly To consolidate as a world an leader environmental in environmental management management. system in the municipal environmental,Goalareaprocesses. thatB: To enables ensure social the the implementationand sustainability economic principles ofof thethe municipalPolicy. into all areaplanning through and integrationdevelopment of municipalGoalenvironment C:D: To environment ensurecontributefor all people a safethrough to through aand sustainable establishing healthy effective living, economy environmentalan integrated working, and system recreationalmanagement.a clean of andpollution and healthy builtand waste management 6-12 Goal E: To provide for sustained delivery of services and a sustainable economy whichinGoalby protecting delivery F: To create depends. and amanaging culture of thelearning renewablemanaging to enable and the non-renewable effective participation resources of onall environment, and to enhance an understanding and 6.4.2.2 objectiveAll six goals that relate specificallyLinks directly to estuaryfocuses to estuary management on the management. coastappreciation i.e.: 'To However optimise of the environment. theGoal benefits E includes derived an objectivefrom the theunique following coastal actions resources are outlined: of the eThekwinistakeholders,keepingLocal government with Municipal newto protect shallnational Area'. develop coastal Under aresources thismunicipal and coastal enhance management coastal qualitypolicy into coastal policy, in collaboration with relevant TheCoastalshallmaximize economic, be acknowledge,ecosystems, the developmentalrecreational, protectedincluding educational, benefits andestuaries, enhanced;they cultural provide; shall and be protectedhealth value and of managed the coast to aLocalhealthDurbanderive manner government thevalue Bay optimum that andshall doeslinkages shallbe benefit protected not manage with forundermine allthe andunique on municipal amanaged sustainable coastalthe area.environment toresources enhancebasis; within integrityits ecological its jurisdiction of coastal value, in 6.4.3.16.4.3 EnvironmentalOverview Services Management Planecosystems and optimises benefits without jeopardising the coastal ecosystem. isgoodsbeenspace-planningThe included eThekwini defined and services in asthe Environmentalframework important SDF (eThekwini, (Boon, openfor the pers.2003).Services space Municipality. comm.) This areas Management open andthat In space termsprovidereferred asset Planof significant theto ishasas plan the thebeen approved63 Environmentalenvironmental 000mapped ha openhave and 6.4.3.2 Asset.(eThekwini,and institutionalThe Environmental 2001; arrangementsLinks 2003). to Servicesestuary that management Management can contribute Plan to securingoutlines various the open approaches space asset 6.5 Budgeting forinEstuaries estuary terms of and managementthe partsEnvironmental of their catchment Services Managementare included inPlan. the open space areas defined was(eThekwini overeThekwini RIO Municipality, b (R2.2 Municipality b on 2004a). capital has expenditurea substantial and budget. R8.5 Inb onthe operating 2004-2005 expenditure) the total budget manyEstuariesactivities municipal thatare impactsignificanttake components place on estuaries).municipal that are involvednot assets In focussed addition and,in estuary asthereon discussed estuaries managementare numerous in¡n previousparticular management sections, but are activities (and allocatedareonrelatednature estuary dealt to specifically ofwithinestuary management estuary ¡n management. these managementto estuary althoughframeworks. management. For aactivities, instancewide As varietya result theis not drafting of possible these of factorsthe to SDFestimate is not the focused of estuary management activities and the diffuse budget of identifiedBudgetbudget is allocationby likely Mather to be (pers.is allocated complex comm.) to and specificand influenced Breetzke Alignmentprojects (pers. by in a the withcomm.)variety coming the are:of IDP: years.factors. This The Factorsis processa critical factor because to be eligible for funding,accessprojectsbeingdoes not formulateda funding. projectfor have funding. an must explicitwith Projects align an link eight-pointwith thatwith the fall theIDP. outside planbudgeting While that of the identifiedwill process, current identify programmesversion the programmes next of iteration the will lOP andnot is funded.SupportofficialsmustTenacity be drafting ofcommitted and decision-makers: commitment the relevantto the process componentsof lt theis critical projectof securing thatof champion:the decision-makers IDPfunding to ensure The and projectmust that understand theengage champion project with the is Alignmentopportunitiesstrongproject rationaleemphasis with and social and accesson value theequity toneed its resources issues:outcome. to promote In among South social previously Africa equity as disadvantages bya wholecreating there economic sectors. is a 6.6 Conclusion aProjects social equity that have focus a aresocial likely equity to secure focus orsupport. are aligned with broader projects with 6.6.1 TheoverIDP IDP takesall (and other precedence the plans, associated policies Long and Term strategies. Development This is Framework)demonstrated takes by precedence the degree to Thiswhicheightfoundationintention is related underlinedplans of andonthe plans, which eThekwinieverything by policies the our Municipal strategies IDPwe and dois strategies tomust Manageroversee and fit actioninto highlight the whothose plansentire stated plans'. this arefunctioning alignment.that built.... 'the of city's theThe municipality. lOPlegislated is the The IDP contains broadprogrammes.activitiesFrom vision an estuary need for tothe management be municipality aligned with perspective and the IDP.contribute this In particular means to that they any must plans, conform projects to and the its strategic development 6.6.2 environmentalstrategicTheGiving IDP includessustainabledevelopment sustainability. Sustaining development programmes As the significant Natural status and environmental and withinillustrates Built the Environment' IDP the resources significance estuariesas one placed of should eight on 6.6.3 Thebenefit IntegratingIDP approachfrom the across strong is resulting disciplines emphasis in integration on sustainable across development. disciplines as demonstrated by strategytheissues.municipallevel cross plans) indicate sectionProposals components deal ofthat issues withfor these Coastal areissues covered plansbeing andover areincludedin Estuary the andalso IDP aboveintendedin Managementandplanning theland tofact efforts use.cut that acrossPlans In tothe addition cover SDFsin disciplines the a (andmultiplicitydrafta variety lowercoastal and ofof From(Mather,regularlyintegrate an estuaries pers. consultvarious comm.). perspectivewithissues. other lt should components this is also a positive be if notedthey development believe that components their inactivities view of of the arethe municipality inter-linkedfact that wiserthat(municipal)moresuccessful impact estuary integrated these management decision-making.activities systems. understanding that depends Ancan integrated impact of on the managingthe managementvalue health of theofestuaries these many approach systems. different and thewill typesThisalsorange resultwill of of activitiespromote human in a estuary.catchmentplanningBoon (pers. As in resulted athecomm.) result Northern ofinhighlights concernsan unnaturallyArea, that aboutthe during oversupply high the interdisciplinary possiblefrequency of impactwastewater of breaching discussionson biodiversity, in theevents regardingOhlanga visualin the 6.6.4 2004).sewerageattractivenessCatchment inflows and to planning otherrecreational catchments use, (Mather the municipality and Boon, spent2004 in R25 Hay million and McKenzie, to divert AnotherThepositiveof Municipalitycatchments significant development hasas challenge a adopted unit from of an planningtoa estuary catchmentestuary managementfor management theplanning Spatial approach,perspective. isDevelopment the impact illustrated that Plans. activities by theThis use isin a estuarytheEpsteinplanning catchment and (pers. willlead assisthave tocomm.) effective on in understandingthe indicated management.estuary that downstream. thethis implicationsapproach Using has of a beencatchment catchment used activitiesin approach the Northern on to the catchment.avoideffluent.capacitySDF where, potentially In of response the for Ohlanga example, negative it is necessary catchment competing impacts to onto balance demands receivethe river the stormwater have andtype estuaryandbeen extent runoffplaced within of and developmenton the wastewaterthe Ohlanga limited to 6.6.5 Including Estuary Management Plans within the 'Package of Plans' termscoastal'PackageThe municipality of management the of 'packagePlans' has framework. optedplan of plans.' for to ainclude particular EMPslt is intendedEstuary will area provide Managementthat that will anthese serve opportunity plans Plansas the will (EMPs) localto form include area withinpart plan in of the ina Thepackageplansrecreational Long under issues Term usewhich notDevelopment management. covered all eThekwini in Framework,other activities plans, suchthetake IDP place.as livingand The the resource otherSDF componentsare exploitation the umbrella ofand the willEMPsplans'Land'package be included Use shouldfall of withinSchemes) plans' inresult the the (Spatial formal in 'packageare these implementing frameworkDevelopment plans of plans', influencing within tools. issuesPlans, which Including thoseLocalidentified budget atArea EMPsa thatallocationhigher Plans, arewithin and Precinctin takes need thelower 'package place. ofPlans level. funding and As of 7 ESTUARIES AND INTEGRATEDINCORPORATING DEVELOPMENT ESTUARY PLANNING ISSUES INTO THE IDP - 7.1 IntroductionProgrammeResearch conductedidentified Strategic as part of Adaptive Phase I ofManagement the Eastern (SAM)Cape Estuariesas 'best practice' Management for presentedof(Breenestuarymanaging the IDP etmanagement al. inprocessestuaries this2004). report inEstuary needs (Haya is strategic to anddescribeprotectionto be McKenzie andconducted the systematicmeasures process 2005). within tomust way. Totheachieve be contextThe integratedeffective thischallenge of integration. local at into alevelof local eachthe planning project level,phase 2005).Harrison(summarisedEstuary The researchet practicalitiesaI. in2000, Baird in TurpieSouth and of implementing Allansonet Africa aI., 2002), has 1999), focusedestuary and healthmanagement protection mainly and conservationon measures(e.g. ecological Hay andat statusaprocesses Mckenzielocal (e.g.level frameworkconcernmadeandhave responsibilities received integrated canfor ruralbe little structured developmentand attention and urban the as lackdevelopment.probably projects planning of local because and mandatorycapacity. Sinceincluded of IDPsthe In forin 2000confusion anaremunicipalities IDP thelegally withMunicipal about binding, a strong tomunicipal serveSystems issues chance as roles oftheAct of challengingclearIncorporatinglocalbeing level. wayimplemented. to aspect makeprojects tangiblelDPsof that achieving are directly progressthus thisaddressthe route protectiontowards estuary to follow protecting conservation to 'force' these estuary issues systems. protection is a relatively A more at a is to bring the importance and systems,strategies,thatinnovativesensitivities protective and water thinking rural ofmeasures estuariesservices and and urban simple candevelopment to thebedevelopment clear integratedfore strategies.in plans, other plans.into transportmunicipal their Achieving plans plans, sector e.g. this land planningLED integration use and management processesland requires reform so ofsustainableAgenda intoInongoing earlier the 21 IDP South principlesbutdevelopment process. related African and initiatives, In atinitiativesactìvìties addition a local Urquhart level. couldtothe incorporate IDP Laterbe andGuidecombined CSIR Atkinson systematic Pack (2004) with Series (2002) IDP reported conservation processes (2001) described on providedthe to planninghowprogress achieve Locallocal TheSeveralstrategicintroducedIDP outcome process tools environmental into to ofare supportthethese highlighted IDP worksguidelines theplanning integration providedin DEATprocess to inform (undated)ofthe to sustainable strategyprotectbasis andfor the decisions identifying Urquhartdevelopmenthealth of and estuaries.and tools project Atkinsonissues that designs. caninto (2002). thebe waysIntegratedmanagementThis section of incorporating Development aims and to to brieflyestuary highlight Planning. describe protection the The bestsimilarity ultimatemeasures practice betweenaim into related is theto describe municipal thisto the process process the lOP most process.and of effective estuary that of 7.2 The processBest of estuarypractice appliedmanagement to the management of estuaries says that management should - strategic and adaptive authoritiesalsoexplicit,be providesstrategic promotes opportunitiesand action, adaptive and for(Rogersadjusts learning to and changes through Biggs in 1999). experience,ecological The andapproach appropriate social conditions.is purposeful, for local lt in the Eastern Cape where experience and knowledge are limited. of processFig.Furthermore,the first phaseof estuary it ofsets the management direction Eastern forCape management described Estuaries by Managementand McGwynne7.1 at the same andProgramme. timeAdams allows (2004) flexibility. as part illustrates the strategic adaptive management approach applied to the forum to1. representConstitute the an broadestuary spectrum management of stakeholders terms ofinstitutions the ecosystem, andAssess society current state in 1 hierarchy Compilethat leads an to objectives (evaluate progressattainment towards of the future desired state)10. Auditing Define the vision/future desired state operational goalsdescribe that the future desired state - management actions to Identify possible 'V operational goals using indicator (measure achievement of 9. Monitoring I achieve and maintain the future desired state data assessed against TPC5) [hypothesis testing] Evaluate management actions through predictingresponses environmental using conceptual or[hypothesis formulation[ simulation models 8. Imp ement A¡ Select management action(s) managementThe(McGwynneFig. 7.1.process An andestuary forum Adams representative management 2004 modified of protocol all from possible Rogers proposed stakeholders and Biggsfor South 1999)e.g. Africanrelevant estuariesmunicipal starts with the establishment of a formally constituted estuary environmentalcouncillorsaorganisations central role and andin environmental estuary Friends management, associations. officers, district theySince should municipalitymunicipalities initiate and the are provincial process, likely to begovernmentmaintain allocated its persons, interested local residents, scientists, environmental Tofromauthorisemunicipalitymomentum, serve it. as ana andstartingas independent theplay likely pointa key (althoughfrom roleassessment inwhich driving as to yet ofinitiatethe theunofficial) implementation current the management responsible state ofof projectsthe process, agentestuary. that should thearise The Thedevelopmentcurrentinstitutionalassessment ideal state ofenvironments should ais vision described be for holistic a and futurethrough should covering ideal the include state development the that opinions state will offocus fromofthe a management biophysical, hierarchicalthe broader forum.seriespriorities.social andTheof state assessment will expose less-than-ideal areas and allow the seriessubsequentlyrelationshipsandobjectives ofinstitutional steps, that identifiedassociatedit isculminates in fact iterative.and with in evaluated eachoperational one. Althoughby goals examining that the define process the desiredpotential is depicted ecological, cause-effect as a cyclical social conditions. Management actions to achieve these goals are through7.1,Theremaking. step are monitoring 6) variousThe (e.g. effectiveness predictive toolsusing that specific modellingcanof an beindicators. action used or intousing achievingAnpredict auditing expert cause-effect an opinion)process operational evaluatestorelationships guide goal decision- isprogress followed (Fig. 7.3 IDP formulationobjectivestowards and achieving andthe operational process the desired of goals. estuary state and,management if necessary, leads to an adjustment of the Thedescribedbetween lOP is a municipalin tool Section for achieving 4sectors. and illustrated Thedevelopmental IDP schematically process local and in government Fig.the 7.2.details thatof each is integrated phase are Phase 1. Preparation Phase O. Analysis StrateqiesPhase 2. Evaluation and feedback ProjectsPhase 3. IntegrationPhase 4. Fig. 7.2. Cyclical representation of phases in the IDP processApprovalPhase 5. towithin strategicTherefocus theIDP itsframework inprocess prioritiesthat it focuses must ofand co-operative achievebudget on key allocations. issues,buy-in governance. fromand is relevant adaptive As in stakeholders estuary in that it management, is reviewed and take annually itplace is asdevelopmentrelatedThe indicated processes principles in can Fig. of be IDP7.3. (see compared development Sections with 4.2the and stepsand estuary 4.3).that characterise managementIndeed the estuaryfive incorporate phases management closelyof IDP IDP Phase Preparation Phase O: 4 Step in estuary management process 1. Establishment of managementan estuary Phase 1: 2-3. Analysis Forum Analysis .1 4 state(assessment and developmentof ofan current estuary vision) 1 StrategiesPhase 2: 4 possible management 4-5. Objectiveshierarchy and actions PhaseProjects 3: 4 ) 6-8. Evaluation, Phase 4: I management actionsimplementation of selection and (projects) Integration '4 ' 9. Monitoring the ApprovalPhase 5: 4 towardsevaluateoperational achievingtha progress i1pirad goatsachievement10. qtta Auditing of to ToprocessFig. some, 7.3. (see Relationship drawing also Fig. a parallel 7.2)between between IDP phases the processes and steps of inIDP the formulation estuary management and estuary implementisreviewapproachmanagement common to track thatplans. to may mostchangepresents appear planning following an tenuous. optionally and the management implementation Both cyclical are basedmethod initiatives of specificon of the continuous that 'plan-do-check-review'actions. generate This planning actions approach and to ofManagementbudgetprojectsIn an the IDP and allocated process a System,recommended to actionsa canspecific generate requiredtime cluster frame. additional ofto meet aProjects municipality aprojects specific that are to areobjective. achieve strategic presented objectivesEach e.g. in developmentproject the outlined form hasIntegrated of a Coastal Zone Management Plan (ICZMP) or Environmental inbemay anthe remembered constituteIDP primary are structured plan;specific that theseall managementactionsand can presented acceptedappear actions asin by specificsubsequent a andmunicipality projects.may revisionsbe relativelyas mandatory of thesmall. lOP. and It needs Projectsincluded to Managementrequirements.eachthroughAlthough with the not its estuary explicitly own EvenPlan objectives, managementaas suite stated, a project, of relativelythe deliverables, processimplementationwhich minor gives can budgets,actions also formal of be managementcan regarded legitimacytime be framesexpressed as toactionsindividual and these in manpower angenerated actions. projectsEstuary 7.4 StrengtheningviewingRegarding the case these estuary for actions. estuary management protection actions in the as projectsIDP process presents an alternative way of to estuaryincorporateInclusionplay an protection active into estuary an role IDP a protectioninmunicipal ofthe projects management measuresenvironmental that either isof anthese directlypriority, effective systems. addressthe way importance ofTo threatscoercing succeed of to estuariesmunicipalities estuariesin making and or themademaintainedofmakers factors estuaries part and that of throughout. IDP the mustimpact stakeholder'normal' be their raisedSince IDP health groups.agenda lOPs from need are theAchievingso reviewed that tofirst be each phaseunderstood this annually, review awareness of the revisits estuaryby planning municipalmeans these issues thatissues.process decision- need the profile to and be environmentapproachesdirectly(seeThe environmentSection tackle that5)in environmental withgeneral, couldis notthe beregardedresult highlight taken. thatissues. asOne theIDPs a issues Inprioritywould have addressing facedbegenerallyin most to byraise this Eastern both not theomission, supportedterrestrial profile Cape thereofmunicipalities projectsand the aremarinenatural twothat theestuariesestuaries.theirsystems environment areas), (especially and An and threatsalternative infollow general since to this their municipalitiesapproach atwith goodsthe a same campaign and is time.to needservices, focus focused Theto dealimmediately latterand withspecifically inapproach so all doingenvironmental on on is theraise thethe importance onetheprotection issuesprofileadopted inof usedofThein thisthe rest as IDPreport supplementaryof process. this although section The both focuses IDPreference approaches Guide on howPackmaterial. areto (DPLG incorporate valid. lt is 2001)important estuary is a usefulto issuesnote manual that into although eachand can phase the be 7.4.1 municipalities.teams,IDPIDP process Phase working isO: defined Preparationgroups and and well workshops structured, at itsthe actual various implementation phases can indiffer terms between of task estuaryelementstheThe summary IDP issues development of each table follow phasepresented in process the for table easy in was thatbelow reference.outlined section the phase in is Measuresdetailrepeated description. in Section here to promote to 4 captureof this the report. the inclusion essential Part of 7-6 AThe concernsresponsibilitiesmunicipality presence into isof havelikely three beento other respond formally factors positively delegated, (not necessarily to acceptedpressure pre-requisites) andto integrate understood. environmental will notably its planning and development activities once its environmental improve the chances of the successful inclusionApromotesAn issues,knowledgeable environmental of estuary sustainablethe IDP related process, policyEnvironmental use projects thatof activities natural recognises viz. Managerresources. of other the municipal(EM) value who of coastalsectors, is familiar ecosystems and with is acquainted estuary and withseeManagementidentifiedEstablished the also officials Section the Estuary whoPlansmain 7.3). manage withthreats EMFsManagement specific each toare 'their' phasea management source estuariesForums of theof stakeholders planning (EMFs)actions and even process. (presentedthat willing developed are tolikely ascontribute projects Estuaryto have to - relatedbeIn Easternfound to the to Cape achievemotivation municipalities integration of preferably theseregardless a elements municipalIDP of the processes are officialstate usually of who inthe absentan municipality.champions effort and to protect ways the Success causeneed the natural tois functioning of estuaries. functiondelegate'champion'Forumby lobbying andas this an shouldIDP the function add-on Steeringinfluential be theto to a Committee,anotherEM relatedtiers or, of if department management,post.there at all isIf nostagesneither (e.g.such particularly of wasteexist,post, the planningan management)the official the municipality IDP process. who Representative untilperforms Ideally should an EM thisthe is ActionsSouthdevelopmentappointed. to Africa address 2000),(highlighted estuary national concerns ¡n the environmental White should Paper be legislation guidedfor Sustainable by theand principles policy, Coastal and ofDevelopment sustainableinternational in foundationelementsinclusionenvironmental that forof estuarythe govern policy agreements integration thesethatspecific recognises processes ofto projects estuary estuariesis presentedinissues the IDP. asacross invaluable TheFig. municipal 1.relationship natural sectors systems between and lays the thethe which South Africa is a signatory. Municipal developmentPrinciplessustainable of legislation and policy environmental National environmentalcommitmentsInternational Municipal environmental policy Environmental assets (especially estuaries) + PreparationIDPAnalysis concernsEstuary StrategiesIProjects (modifiedFig. 1. Diagrammatic from DEAT (undated))representation of the factors that shape the outcome of an IDP formulationenvironmentalPreparationMunicipal of environmental the issues.Phase Process to raise Plan policy the and profile the plays stakeholder of a thekey environment role participation. and set the tone for the If a policy is place, it should be highlighted during thein the municipal approach to 7.4.1.1 Key elements and measures to incorporate estuary issues lOPThesamelikelyenvironmental EM totime shouldbecome looking conservationinvite allies for a support broad of the arange EMforcommon theirand of environmental ownsupport thread causes. linkinghis various Throughstakeholders theseprocess campaigns stakeholders,encouraging to through contribute while athey spirit atto arethe of participating in the IDP Representative Forum. With notultimatelyoutcomes.groupreciprocity only that in enhancecantheandDeveloping management focusnurturing the the aenvironmental debatesrelationships,support of estuaries. onbase municipal performancethewill EMbe an issuescan invaluable build of and the a priorities strongmunicipality asset environmental for and the influencein EM all spheresand lobby their will IDPareKey summarisedPhase elements O: Preparation ofin the boxesPreparation below. Phase and measures to raise the profile of estuaries OutpUtPurpose DistrictProcessTo plan level forthePlan districtprocess framework (municipal) level to be alignment followed actions in developing the IDP Measures to incorporate estuary issues process.TheRepresentative Environmental Forum, Manager a structure (EM) or equivalentthat institutionalizes municipal officialand guarantees must be a participation member of thein the IDP IDP workingsuchimprovePrior as to Estuarygroups, the his/her IDP Managementand process,understanding environmental the EM Forums of should the departments threats (EMFs), develop to Friendsestuaries partnerships of national Associations, and and withways provincialother to managemarine environmental government conservationthem. Improved groups, to environmentalThebecominginsight EM should will meanmembers invitegroups, that his he/she ofheenvironmental the should IDPis better encourageRepresentative partnersequipped broad to to contribute lobbyForum. participation with Ifto confidencehe municipal has by notthese planningand yet groups persuasion.made processes contactin the IDP bywith (whereThewaysRepresentative EM in thesewhich should arethey Forum.ensure established) can participate. He/shethat at is leastshould included one also member in ensurethe IDP of that Representativeeach they Estuary are aware Management Forum. of the The lOP EMFForum process member (EMF) and lobbyThelobbyingmust EM keep group shouldcan the bethat broader unifyused makes hisoptimally. EMF environmentalits voiceinformed heard of alliesthe in theprogress into IDP an Representative informalof the IDP but process well Forum. recognized so that He opportunities will environmental need to forbe Ifstrengthenimmediatesensitive possible, to thetheissues. their effectivenessEM issues shouldA positive of participate concernof relationshipthe EM's andin theendeavors. as withformulation far asthis possible group of the will address Process provide thesePlan invaluable to as create well support asand his identify ownand opportunitieswilleach have phase. its own With thatfor sethighlighting detailswould of task mostof teams,the estuary suit IDP hisworking process issuespurposes groups differingso thatand, and hebetweenif required,workshops. can plan municipalities, delegateand The optimize EM attendance must each his decide approachmunicipality at onthese the at CommitteeIfevents an environmental to partners so that in opportunities his policy environmental exists, for thethe lobby inclusion EM group. should of environmental highlight this (and policy estuary to the related) IDP Steering issues campaignandWithininto thetarget the IDP should: lOPmunicipal process Representative (i) canemphasize officials, be created. councilors,Forum, that the the environment EMcommunity should is conduct membersthe resource an andestuary base stakeholder ofawareness all human groups. campaign activities The andimplications,responsibilities, the potential and (iii) (iv)impact draw showcase of attention municipal estuaries to andthe bymunicipalsocietal highiighting activities environmental thethere onvalue these of policy theirgoods (ifgoods andone services.exists)and services, and The its are ecological limits to development (ii) highlight municipal environmental supportTheultimatelycampaign EM and should gainshould training support link open withon forthe the aestuary opportunity coastalmanagement related management to gainprojects. of estuaries. input expertfrom Budget stakeholders who canmay act need and as municipaltoa mentorbe allocated sectors,and providefor and this TheportfolioCommitteeitem. EM should councilors that develop will (e.g. enable a environment)close him/her working to may lobbyrelationship be the on estuarythis with committee acause member(s) amongand these of this the councilors group. IDP Steering Relevant should issuesDEAT (undated)into the IDP formulated process. aAlthough list of tools some to ofpromote theseRepresentativereceive toolsthe integration are Forum. used inof the sustainability measures particular attention during the environmental awareness campaign in the lOP Toolscausealready forand described the presented integration for inestuary-related the of box estuary-related below. issues, issuestheyStakeholder have (after been analysisDEAT adapted (undated)) for the estuary 7.4.2 IDP Phase 1: Analysis CreationStakeholder of participation workshops structures and processes The(location,riskspartprioritising phase of based a designatedpeoplecentres issues on available affected, fromon taskassessing a multisectoral reports.magnitudeteam compilethe He level ofperspective.will the existing produceof problem, development information A a technicallistcauses) that in includes andthemunicipalon priority municipalitya short each officer issuesdescription problem willand and as Anreconciledopportunityof the analysis major with oftothreats. keytheundertake technicalestuary Stakeholders anissues information issue-focused can in the (if so thereIDP that analysisRepresentative issuesis enough can and informationbe their prioritised. Forum information willdocumented also willget bean or inputtoEstuaryissuesknown) the from health may emergeManagement an already EMPof afrom particularinto have Planan the analysis beenIDP.(EMP) estuary. identified thatof environmental Thiscaptures by phase an the EMF presents actions issues during neededduring an the opportunity development this to manage phase. for Thesethreats directof an Becauserecognisedresources the on during IDPpriority thisprocess issues. phase is and strategic singled and out budgets as priority are issues limited, that warrant inclusion lt is important that the key threats to estuaries are it must focus its Theconsolidatingeconomicin theIDP form Representative ofand projectsissues, environmental thisinto Forum forumthe IDP. decidesdevelopsconcerns. whether the After criteria certain a process for environmental prioritization (i.e.of social, estuary) of aggregating and TheEnvironmentalarea-specificissues absence will become of and anand environmentalissue-specific, particularlymunicipal priority estuary policyfollowed issues. related¡n mostby sector-specificThe input Eastern prioritization is vital Cape during and municipalitiesprocess then these project-specific. willevents. initially means be developmentthatuppermostbackground.policy environmental can on alsoof thean allow appropriateenvironmentalissues a aremunicipality tackledenvironmental agenda in to untilan ad onepolicy hoc is manner,in as place. a priority if at thatall. Notmust having remain a lt is therefore imperative that the Analysis Phase recognises the let environmental issues slide into the 7.4.2.1 IDPKey elementsPhase 1: and KeyAnal measures elements sis andare summarisedmeasures to inincorporate the boxes estuarybelow. issues Purpose'. ,' To ensure that decisions will be based on: properknowledgepeople's information priority on available needs and anda and thorough problems accessible understanding resources of the dynamics AssessmentPriorityinfluencing issues of development existing or problems level in of a developmentmunicipality overallKnowledgeproblemsUnderstanding financial on availableon frame) nature, resources dynamics and and potentials causes of (including priority issues a tentative or Measures to incorporate estuaryThe issuesmunicipal Environmental officer whoManager compiles should and impress analyses upon existing the IDP information Representative that the Forum analysis and should the technical be issue- Thefocusedimpactsimpact EM andshould all they municipalnot experience.participate sectoral, sectors. and in The the that The analysis stakeholder environmental EM should should analysis highlight link issues issues of theare priority to currentimportant their issues. cause(s). status because Environmental of estuaries they cut and issuesacross the humanmayand ltofparticipatebe would estuaries. analyzed be inuseful whatever by theto include IDP structure Representative an estuary is assigned checklist Forumto this to taskassist or by and the an use environmentalad it hoc to highlight task team. analysis. the status The This EM and checklist should needs depthsuppliesexploitationwould analysis.include a matrix of questionsliving The to checklistassistresources, related in coulddefining development, to keyalso information issuesbe rephrased andsuch requirements management as into sediment a series prior and of questions.toplanning.water an information dynamics, The IDP watersearch Guide quality, or Pack in- joinemphasisStateThe the Analysis districtof the on Coast municipality thePhase coast reports should and and where estuaries. be initiate supported available. aOr district a bylocal Where municipal analysis municipality these oron are district priority maynot available, wishwide environmental to State conduct local of the municipalities aissues specificEnvironment with coastal ancan or spatialWhereotherstudy planningthat appropriate,context. would activities. includeThis available will estuaries. help information to ensureThis researchon that estuaries the should municipal should be donebe spatialmapped over strategies2-3 to placeweeks the inand parallelissues land into withuse a information.phaseproblems,management/development and opportunities,should Data capturing not constitute trends should decisions aand separatebe patterns.avoided are based process and These onexisting but a maps general an informationextension should awareness be of used usedthe compilatione.g.of as spatial the a tool Environmental constraints, duringof existing this ThethosenetworkingPotential EM without should Atlas should adopt (ENPAT). engageprepare a pro-active Municipalities ahim planner for approach this for approach. this with to purpose. planningthe environmental departments analysis. should His prepare prior researchthe maps, and and Therelateda taskEMEM supported and, teamto estuaries. if to possible, develop by theThe environmental criteriamemberstask team to assistwouldof thelobby in reportenvironmental prioritizing group back can to environmentalassist the lobby IDP the Representativegroup prioritization issues should andprocess participateForum. specifically by forming in thethose integrationBelow are of the estuary-related tools listed byissues. DEATphaseprocess (undated) to toensure consolidate that that issues municipalhave that beenimpact priorities. theadapted health This ofis forestuariesa key the event are and accepted is the asfinal municipal opportunity priorities. in this Tools for the integration of estuary-related issuesStrategicEstuary (after Environmental Scan/Overview DEAT (undated))Assessments ResourceSustainableState of the Economics EnvironmentLivelihoods Framework Reports 7.4.3 IDP Phase 2. Strategies GIS alsoobjectivesaboutThis identifyphase its future and centresprojects. strategies direction. on If strategicthe forThe lobbying each municipality planning issue for theprioritised that estuarymust will develop duringhelp cause a themunicipalityaduring multi-sectoral Analysis the Preparatory Phase;make vision choices it must andand economicallyMunicipalframeworks.estuaryAnalysis issues Phases strategies anddefined was socially and successful, as projects or sustainableincorporated mustthe end reflect process. intoproduct ecologicallyprojects of The this supported IDP phase sound Guide should principlesby Packclear see financiallists andpriority thean beprinciples focused to on: guide municipalities in the formulationavoiding pollutionwaste, of local ensuring andstrategies, degradation recycling which ofor should thedisposal environment; in a responsible manner; resources;consideringenvironmentalminimising and the rights; remedy consequences negative of impacts the exploitation on the environment of non-renewable and on people's natural minimisingecosystems;payingavoiding specific jeopardising the loss attention of renewablebiological to sensitive, diversity; resources vulnerable, and and ecosystems; highly dynamic or stressed toTo particularinform be effective, strategy resource these decisions and guidelines at and a particular project must designs.identify location.avoiding the Guidelines Specific principles disturbance guidelines may that include: to are cultural can applicable be heritage developed to asites. a list of economiclocationsendangered that activities or may degraded require that may resources; restrictions impact the for environment; use; and takeThestrategies IDPplace. Representative lt and has formulatingthe important Forum criteria taskis where ofto decidingguide therisks core this betweenof process.activitiesenvironmental alternative ofThe the protectiondisasters. Strategies environmental of Phase estuary formulation.ltManagerhealth is important needs and totohis notebe environmental captured that each in phase these lobby of criteria groupthe lOP shouldand process the play municipal builds an active on Environmentalthe role outcome in their of thestakeholders,successenvironmentalenvironment, previous of one.the entirehealth Earlier estuary and lobbying thus campaign the and lives the depends ofawareness local onpeople the campaign impact and future of will these havegenerations. early sensitised phases. The especiallymunicipal officialsestuaries, and and the politicians impact about the importance of the their decisions have on 7.4.3.1 TheseIDP Phaseare summarised 2: StrategiesKey elements in the boxes and measures below. to incorporate estuary issues Purpose principles,ThistackleTo ensure debate priority availablebroad should issues inter-sectoral occurresources, in the debate interlinkagescontext on of the the andmost vision, competing appropriate policy guidelinesrequirements ways to and Outputs r ObjectivesMultisectoratPhase of making (for vision each choices priority after issue) due consideration of various options Measures to incorporate estuary issues into Phase 2: Strategies IdentificationTentativeStrategic optionsfinancial of projects and framework choice of for strategy projects (for each issue) achievedcloseThelobby measures co-operation group through in listed these planning with below events the and are environmental is discussion vitalrecommendations for the workshops. success lobby group.for of Participationthe estuaryEnvironmentalMany of protection bythe the functions ManagerEM campaign. and ofthe (EM) this environmental phaseworking are in thoseThein'protection visionline living with statementnearby ofthe coastal core will should nationalexperience ecosystems'. include value the of theThisbenefits. sustainable concepts can be achieved useof 'sustainable and bythat focusing the use broader of on coastal how community estuary resources' protectionand not and only is AssumingtheA SWOTprioritize high profile (Strengths, that the ofestuaryelements estuaries. Weaknesses, issues to be areincluded recognised Opportunities, in a vision. as priorities, Threats)The environmental the analysis formulation can lobby be of groupused working toshould identify objectives maintain and ecosystems.Sustainableincorporaterelated to the Coastal The theprotection principlesworking Development of objectives estuaries of sustainable 2000) should and be promotecoastal guidedformulated thedevelopment by maintenance key taking questions. into (see account or Theseenhancement The limits Whitequestions of acceptablePaperof estuary should for developmentInlimitschange general, are broadly not Localised known of identified alternative or Strategic understood. for strategies,estuaries. Guidelines The decisions related precautionary toon the which environment principle strategy should shouldto adopt, be adoptedbe andused in whereto the guide project these the povertywillestuariesplanning be considered alleviation process.where possible) togetherandGuidelines gender and with shouldequity,incorporated those beforlocal developedother economic into cross-cutting the specificallyguidelines development, issues for for sustainable such estuariesinstitutional as spatial (and development issues development,for individual and other that ofguidelineschecklistscross-sectoral Estuary andManagementcould recommendationspolicy be quantitative guidelines Forums), (rates (e.g. onor spatiallyhow HIV/AIDSof freshwater to address based and (mappinginflow), constraintsSTD Plan). qualitative of sensitiveand Estuary maximize (promote areas).guidelines opportunities. the establishment may include The workingprocess.Clear objectivescriteria should and beLocalised developed Strategic for evaluating Guidelines alternative for estuaries strategies should for be each used priority to assist issue. this The selectionproject.policyIf no environmental mustof If projects.a policybe made is inpolicy a place,priority is init objective should place, bethe and used formulation be tocaptured guide of decisions withinan appropriate the on framework objectives, municipal of strategiesa fully environmental supported and the ToolsintegrationBelow for arethe of theintegration estuary-related tools listed of estuary-related byissues. DEAT (undated) issues that (after have DEAl been (undated)) adapted for the EstuaryLocalisedMulti-stakeholder health Strategic criteria workshops Guidelines Scenario planning 7.4.4 IDP Phase 3: Projects Environmental audit TechnicalprojectStrategicThe Projects details and Objectives financialPhase which intointegrates theexperts project municipality constitute the proposals vision, must Project developmentwith ensure defined Task are Teams action concretestrategies plansthat and generateand and sufficiently Localised budgets. the Thespecificneeds.specified. phase issues,produces Affected action a stakeholders series plans of projectsto achieve can withsubsequently objectives goals that adjustandreflect indicators thedesired details outcomes that to measuresuit fortheir wereselectedplan.deliverables,progress. described These to Indicators serve willbutby Taljaardconstitutebothalso shouldpurposes.to measure et differentaI. be (2003) Indicatorsdeveloped change types and McGwynneforon of not trackingtheindicators only ground to changeand measure andin Adams response needin key meeting(2004). toestuary tobe the carefullyThese project issuesaction Southusers,andindicatorscan provideinstitutional Africanand should the insight estuaries effectiveness factors not into only thatthroughpossible measure reflectof management monitoring, indicators change the interaction in baselineand biophysical institutions. their between information application. elements To estuary detect is butEstuary neededresourcesreal also change inrelated against social and in thewhichIdeallyunavailable, IDP change Guide those whichPackcan who be statesusemakes evaluated. indicators that the theinterpretation This Projectshould information Taskcontribute of data Teams is difficult. howevertowards should theiroftenfulfil selectionthis incomplete task. Statealthough and of 7.4.4.1 theoralthough Environmenteven district there SoEare (SoE)Key few assessments. elements municipalitiesreports and can measures assist in the Easternmunicipalities to incorporate Cape that toestuary can be issues guided by local identify key issues These are summarised in the boxes below. To formulate implementable project proposals workToIndicatorsby ensure byaffected technical a for smoothgroups each teams, objectiveof planning-delivery residents adjusted to needs link and through local conditions detailed Measures to incorporate estuary issues into Phase 3: Projects s CostMajorProject estimates activities outputs withand budgetstimetargets frame and with and locations sources responsible of finance agencies whereofThe selectingnot Environmental onlya project measure indicators has Manager beenchange to monitor designed (EM)in biological project and to theaddress deliverables orenvironmental physical a particular andcomponents lobbyalso estuary to group track but issue. should changealso These changes input in estuaryvariables into in the social variables process should factors thatmanagement characterize experts communities to decide associated on the most with appropriate the estuary. indicators. The EM should consult with estuary AspeopleIf part possible, of (stakehold indicator environmental developmenters) who areindicators to for use estuaries, themshould to raise betriggers selected awareness (red and flags) of developed the should importance be in identifiedassociation of specific that with issues. will the integrationBelow are of the estuary-related tools listed byissues. DEAT (undated)limitsprompt that of actionacceptablehave by been stakeholders. change adapted for key These resources.for should the indicate the state of the ecosystem in relation to the Tools for the integration of estuary-related issuesSocialEnvironmental (after Impact DEAT Assessment Impact (undated)) Assessment 7.4.5 IDP Phase 4: Integration EstuaryEnvironmental health Iindicators estuary related guidelines withframeworksDuringof content, this and locationphase, strategies. draftand timing project Projects to proposals generate are then consolidated areco-ordinated checked andbetween the integratedrevised sectors for programmes compliance in terms municipal vision, policies, legislation, priorities, objectives, budget thatOnesustainable make of theup anuse outcomes IDP. practices. At this stage a set of clear criteria should be used to encourage is an Integrated Environmental Programme (IEP) that servesaimsimpactenvironmentaldemonstrates to as oncapture athe tool natural issues IDPthefor mainstreaming environmentalcompliance environment.are addressed, with environmentalcontributions This andenvironmental programme that envisaged from issues. is all policies,not the projectsan lOP add-on ensuresprojects have programme nointhat context.negative urgent but lt The EIP should take the form of a summary statementconsiderationissues identified that ofreflects thein the Strategic theAnalysis following: Environmental Phase; Guidelines; thethoseprinciplesprojects manner projects and in NEMAwhichtheir that activities requiretheand municipality national anthat EIA. significantly environmental will ensure impact standards;that the its environment;projects and comply with the AttoTheincorporated this Environmental stage an into Integrated finalManager project Monitoring should proposals compileensure and and thePerformance intothat EIP each the and Integratedrecommendations check Management all Sector project Programme. Systemproposals of the islOP Representative Forum are monitoringdeveloped toand ensure performance accountability management on the system.basis of Thisa simple, system effective would andserve affordable as a tool 7-16 andthemrequirefor the harmonising in Municipalcheckingterms of indicatortargets allManager indicators and type to milestones periodically andthat targets. measure for reviewall lt wouldprojects.project priorities also objectives require and compiling,strategies.and synchronising checking lt would indicators.government.(KPI5)The Municipal to ensure The TheSystems national thatAct alsomunicipalities Act set hassets of providedKPIs parameters establishesdirect a set resources forof nationalmunicipalities a basis to key forthe performance comparisonstrategic to select priorities their indicatorsbetween own of 7.4.5.1 Thesemunicipal are summarised performancesKey elementsin theand boxes for and benchmarking below. measures to among incorporate municipalities. estuary issues Puroose theTo vision, checkensure strategies and consolidated harmonise and resources and results integrated of project programmes planning for that compliance constitute with an :Matn outputs Operational strategy that includes: integrated developmentSectoralRevised projectprogrammes plan proposals IntegratedFinancial/capital Environmentalspatial programmes investment development Programme)related plan framework to cross-cutting dimensions (e.g. Disasterindicators)Integrated Management institutional Monitoring Planprogramme and Performance Management System (with Thegroup.Measures measures listedto incorporate below are directed estuary at the issuesThe Environmental Integrated into Phase Environmental Manager 4: Integration and Programme the environmental should include lobby estuary issues as priority issues. AAll set IntegratedIDPenvironmental of Representative criteria Sector should project Programme. be Forum proposals developed are shouldincorporated to promote be checked the into incorporation finalto ensure project that of proposalsestuary the recommendations protection and also measures into of each the theintointegratedEstuary Integratedthe process protection and Monitoring of reflects project criteria the andcross-checking, shouldoverarching Performance be incorporated values compiling Management the intomunicipalityand the revising. System selection would to ensureof like key to performance that promote. the system indicators is truly for Below are the tools listed by DEATtheThesustainable national development (undated) set use. of keyof thatlocally performance have specific been indicators.environmental adapted Estuary indicators for related the shouldindicators try toshould align be at orientedleast in part towards with Toolsintegration for the of estuary-relatedintegration of estuary-relatedissues. issuesEstuary (after monitoring DEAT (undated))programme SocialEnvironmentalCommunity-based Management Management monitoring Pan Plan 7.4.6 IDP Phase 5: Approval facilitateordinatedadoptionThestakeholders Approval the by successimplementation the sufficient Phase municipal of centresthe time plan council. ofto on inthecomment deliveringgaining lOP lt presents by onfeedback allon the its andraft priorities. opportunityon will the encourage IDPIDP beforeforreview buy-in this approvalalso buy-in to raises the andco- parties involved or affected. Giving 7.4.6.1 usegoals,awareness of andestuaries. if of the issuesKey environmental elements and consolidates and lobbying measures commitment has tobeen incorporate successful, towards estuary the towards municipal issues the sustainable vision and These are summarised in the boxes below. relevantTo ensure that before being adopted by the Municipality Council all stakeholders and interested parties (including relevant . legitimacy,plan,government therebyAmended support departments) giving and and relevance.the adopted arefinally given Integrated approved a chance Development planto comment a sound Plan on basis the draft of Measures to incorporate estuaryopportunityenvironmentalThe issues Environmental into to comment Phaselobby Manager group on 5: the Approval(EM) andreport shouldother before stakeholdersnotify its approval stakeholders byshould council. of the ensure availability that they of the have draft sufficientIDP. The estuariesThethe draft opportunityEM andreport as importantenvironmental and presented that butthese vulnerableby lobby are the adequately groupIDP coastalapproval should integrated ecosystems ensureperiod shouldintothat that otherestuary be require sectoralused issues protectionto programmes.consolidate feature measures satisfactorily the profile across inof integrationBelow are of the estuary-related tools listed byissues. DEATsectors. (undated) that have been adapted for the Tools for the integration of estuary-related issuesPublicEstuary-related (after review DEAT review (undated)) guidelines 7.5 Procedure Anfor Estuaryan Estuary Management Management Forum (EMF)Forum focuses to engage on protecting the IDP the process health of an estuary engagingconstitutedcompositionmeetingof interest the regulatoryby estuary of needspromoting an EMF conservation authoritiesof theis the described communitiessustainable on bodies matters in Section thatuse that that co-ordinateof 7.2.depend itsimpact resources They the onlocal are estuary.these andformallyopinion at resources. Theythe withand same currentlyaproperly view timeThe to especiallysupportedhaveEMFs no legalhave inthose the statusthe national involving capacity although coastal the to contributetheuse management concept of estuary significantly of local resources.policy. environmental to municipal Section caretaker7.4.1 planning recommends groupsprocesses is theirthatRepresentativein the own municipalIDP participation process Forum. EnvironmentalForum during by EMFsmember, keeping the shouldPreparatory Manager EMFsin howevertouch haveinvites Phase with alsothe EMFmunicipal by opportunitybear becomingrepresentatives the planningresponsibility to members lobby events.to the participate of of ensuringcause the As IDP a of that7.4.6.'their'partmanagement satisfactorily estuaryonThey the can commitment throughout efforts alsoaddresses formof both theof extensivethe EMFs entirethe concerns EMF (where IDP and and process, of theseuseful theestuary municipality. are asnetworks stakeholders inillustrated place) thatThe to in participate productionwoulddepends Sections support to fully 7.4.1of a anlarge inthe toIDP the toA beenprocess.detailedpresent clearly theseprocedure described details on again thein Section avenues here. 7 ofopen this to report. EMFs For to engagethis reason, the lOPit is processnot necessary has 7.6 ConclusionThe lOP process as it is presented in the IDP Guide Pack (DPLG 2001) is a well arenotsectors.servicedefined, aoften simple delivery Although systematicwithout process ¡n clear thepriority andby Guidepolicies any areasconsultative Packmeans to in guide aprovides mannerparticularly decisionsprocedure excellentthat inintegrates on municipalities that priorities, guidelines aims issues toand forpromotethat acrossare each lack inexperienced thephase, expertise,municipal various it is offerunder-development.overlookedmunicipalities,at the municipalities mechanics in favour environmental of the Howeverintegration.of opportunitymore socially despite issues lt is to thus pressureddefinethe (including inherentnot and surprising needs progress thedifficulties, protection associated that (albeit in the most IDPofit with slowly)estuaries) Eastern process poverty towards Cape does andare willtheirbeFor need desiredsingled the aenvironment dedicated futures.out for attention and to be concerted recognised above campaignother as equallya priority lead deserving byissue the andEnvironmental environmental for estuary Managerprotection causes, in to it criteriaissues.playersliemanagerclose at theco-operation toHeto heartfrom put assesswill aside theofneed this start with thetheir to group, ofpresentorderan own the environmental thepriorities IDPin a managerwhich convincingprocess. (albeit the support will Although various temporarily)case need group and to environmental persuade be created in prepared favour andsome of conservation to nurturedestuaryissues ofnegotiate these relatedwill by role- thewillbe environmentalcoastalwillprioritisedmanagementgovernmental need resources. environmentalboth organisations committees),in the Heshort will management and (NGOs) need many long-term. to (e.g.of build which training EMFs,To and achieve may friendsactively that work allincludes associations,of alongsidemaintain this, the managerlinksmanagement him nature within the reservehimself other lOP of regulatory agencies (e.g. DEAT, DEAET, DWAF) and non- ofprocess. the IDP These process links but are also vital to encouragenot only for organizations the accuracy (bothand credibility government of the and outcome NGO5) 7-20 theto ltco-operate benefitis not idealof allwith forrole-players each success other and to in depend protectingespecially on naturalthe the environment. efforts assets, and an skills approach of an that individual will be tobut thenegotiationunderstandinginbecause municipal future, municipalitiesthe skills,response. municipal of environmentaland theSuccess appear Environmental strength likelywill and ofthus tospecificallythe play Managerbe network related a significant coastal potentiallyis to the his most issues,energyrole available inobvious estuaryhisand interpersonal motivation, toperson managementsupport to hishim.lead and campaigninghishighlightsrevision.His priorities. first environmental the and management indeed campaignachieving of coastal issuccess resources, likely to will be especially become the most estuaries,easier difficult with mustbut each thereafter be oneIDP of If not already in place, developing a sound environmental policy that thetaskpriorityRepresentativeFundamentally profile teams issues of andestuaries differ workshops, theForum, IDPbetween are andprocessgeneric rolesthemunicipalities. capacityandis of the municipalrelate same of Measures toIDP for the officials,allrole basic municipalities players presented phases composition to of identifyin althoughthethis IDP report ofand theprocess. details address to IDP raise of topinpointformulationimplementThey make can thefull be these phasesuseof adapted the of measures, IDPthese most Processto criticalopportunities. suit the the for PlanEnvironmental variationsthe formulated inclusionlt needs in toof eachManager duringenvironmentalbe remembered municipal the should Preparatory issues process. participatehowever and Phase Topreparethat in best thethe to ofonewhatrequirement ltmost willthat is currentlytakestakeholders. generates formany IDPs a timerevisions a wastruly consuming introducedintegrated and much and indevelopment 1996learningcumbersome and over clearly plan processan that definedextended satisfies into as aperiod recently focused, the expectation to asstreamline efficient 2000. 8 REFERENCES forArcus the Gibb, Amathole 2005a. 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Management Prepared Services, for Amathole East CoastalCES,comment.CES 2005. Envirofish Management Prepared Buffalo Africa forCity Programme. Buffalo andIntegrated MBB City Grahamstown. Municipality.Consulting Coastal Zone Services, Management 2004. ThePlan. Eastern First draft Cape for www.DPLGDevelopmentCSIR local.government.za/DCD/idpmanual/guideo. 2004. 2001. IncorporatingPlanning Process Systematic in South ConservationAfrica. Discussionpdf Planning Document. into the Integrated Guide Pack: Integrated Development Planning. Available at JuneeThekwiniEpstein 2001. H,Municipality, 2005. Manager 2001. Forward eThekwini Planning Environmental and Development. Services Management6 June 2005. Plan. JuneeThekwinieThekwini 2003. Municipality, Municipality, 2003. 2004a. eThekwini Revised Environmental Integrated Development Services Management Plan 2003 - 2007.Plan. eThekwiniNovember Municipality,2004. 2005.2004b. 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Regional Department, KwaZulu-Natal Planning Buffalo Commission, Land City Use Municipality, Management Main Series, East PersonalConsultantMatherLondon, ASouth Communication, and with Africa. Boon Environmental PersonalR, 2004. 28 Communication. July ManagementProject 2004 Executive: in Hay Department, D and Coastal Mckenzie eThekwini Policy M, and Municipality.2004. Contract The MatherProjectManagementRelevance (K5/1A, 2005. of 413). inEconomic SouthProject September Africa: Executive: Valuation 2004.A Preliminary Coastalof Freshwater Policy,Report eThekwini Inflowsof the WRC to EstuaryMunicipality. Estuaries Planning ValuationPersonal and C.,estuariesMcGwynne,Communication, Adams, in J.,South L.E., Batchelor, 1 JuneAdams,Africa, 2005. withA., J.B. Cowley, a 2004.particular P.,Protocols Marneweck, emphasis contributing on G., the McGwynne, Eastern to the Cape.management L., Mckenzie,In: Breen, of CapePalmerNiekerk,M., estuaries.Ngulube, DevelopmentL., Wood, P.,WRC Paterson, A. 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Paterson, 2004.the Report sustainable A.,Towards Cowley,A.,no TISihlophe, 237/04.the useP., conservation Marneweck, ofN.,Report their Taljaard, C. and G.,S., living co responsibilitiesNational legislation of local applicable authorities to the management of coastal resources and the Constitution of RSA, Act Legislation Damage or degradation Activity/theme Protects and promotes Aim of law Organs of state (defined Responsible authority Municipal decisions and plans must Bill108 of of Rightsl 1996 [Chapter 2: development.sustainablethe ofthepromotion environment of and (sectionenvironmentalrights,fundamental including 24). human right an Constitution).in section 239 ofthe harmfulrighttake intoto anto account theirenvironment health that everyoneor that well-being. is not has a ofMaritime I Zones Act, 15 994 Africa'sdifferentlawsDemarcation coastal applicablezones ofand of (and in)the South theterritorialRepublicLaws air enforced space watersapply above in and the it. to otherwiseimplementationobligationsMunicipalities indicated, and must responsibilitiesof laws be include aware may, the unlessthat in thetheir National Environmental Preventionmarine environment. of damage to Establishes principles National Department of Municipalitieswaters.implementation must thereof consider in the the territorial 1998Management ("NEMA") Act, 107 of Provisionenvironment;or degradation of principles of the for for environmentsignificantlymattersorgans ofthat state affectmay and on for the co- andEnvironmental Tourism (DEAT) Affairs thetheirNEMA environment". actions principles "may (in significantly section 2) affectwhen governanceenvironmentalsustainableappropriate andby relevant governance,operative environmental (seesignificantlypermissionActivities section that in affect24) lawrequire require andthe authorisation environmentwhich environmental may or environmentalProvisionorgans of ofstate; a regime impact for Asectionimpact municipality, assessment24(7). as a inrelevant accordance authority with assessment ("EIA"). specifiedtakemaywhen directspecific an emergencytime the measures periodresponsible incidentto withinlimit person or occurs,a remedy to National Environmental Conservation and To establish a system DEAT I Athe municipality effects of the may incident. prepare and adopt ZoneManagement: Bill Coastal ofsustainable the coastal development zone conservationAfrticamanagementof integrated to promote coastal ofin theSouth the LocalProvincial Authority Authority / thecoastalprogrammea municipal municipality. zone coastal(CMP) or specific formanagement managing parts of it the in coastaldevelopmentand the zone;environmentsustainable of the programmesyearsCMPs andmust can be may bereviewed amended.be prepared every The asfive part andTo relatingre-state the legal tothe statusthe law seashore of TheCMPof Bill integrated stipulates must: development that a municipal plans. Tocoastalthe determineseashore land; andthe other the coastaldirective(i)municipality; be a coherentzone for the withinand management municipal the jurisdiction policy of the of andorgansrelationresponsibilities other of statecoastal to the in seashoreland; of frameworkZoneincluding(ii) Bill,be consistentthe and the Biodiversity national national with and thebiodiversity Act provincialCoastal dumpingatTo sea prohibit and at toincinerationsea, control CMPs. environment;effectszonepollution and on otherthe in coastalthe adverse coastal Legislation r1Fi' Responsible authority National Environmental - . . s DEAl I National, provincial and local 2004)BiodiversityAct(lOofManagement: - . . s s s - p LocalProvincial Authority Authority I ofgovernment an aliencompetent species are all authorities' consideredor a listed for invasive the control s_s. .is ----'-I- I - . . . .,- - . I - I Thespecies. National biodiversity framework ______- - . I I Is -I Ii .- I- i - - . environmentalprovincialmay contain and norms municipalconservation and standards plans for I_I_I_I__'__-_, I I .11 1 , - I - I . I (s38(2)). I- I-- II__I_-_ I I IIl I I . . ]I II : municipalitytheBioregional Minister plans(sat 39(2)(b)).the mayrequest be produced of a by ______I__ I_I_I__I I_!_ IDPs,municipalitiesanAny EMP organ must (under ofmake state that NEMA) sure havethat that: must andto prepare all produce I- -_I_I__'j1 oanynational The applicable EMP/IDP biodiversity bioregional incorporatesis aligned framework withplan theand - I I III specificallyoframeworkprovisions The EMP/IDP apply oftheor ato bioregional demonstratenationalit; biodiversity plan how that the 1L.Dlflcilen I.t: I I1lTl orimplementednational state orbiodiversity municipality by that frameworkorgan (546(2)) and applicable bioregional plan will be eradicationspeciesgovernmentAll organs monitoring, of plan must state for prepare in landcontrol all spheresunder an and invasive their of plancontrol.mayEMPs. as partThisbe Municipalities able ofmust their to getbe lOP. includedhelp mustMunicipalities with includewithin this (s71).Instituteplanpreparation from (with the of Nationalthe this consent Biodiversity of Minister) AreasManagement:National Act (57 Environmental of 2003) Protected Iany I I LocalProvincialDEAT AuthorityI Authority I allocationA municipalityreserve),reserves oftype (andprotected can anddetermine declare name)(s42, environments a thenature type 43, (andof II 46, 47) :_._:_III I - I 1 protectedbeforeappropriateMunicipalities designating environment consultation must a follow reserve (s52). process an or I!lI1I.______municipalmanagementmanagedLocal protected byentity the must areas inmunicipality accordancebe mustassigned be itself with to ora Legislation Activityitheme managementProvides for the of Aim of law Responsible autho Financethe Local Act) Government under the Municipalsole or shared standards;nationalaccordanceprotected norms areas with and in Local(s59).ownership Protected control Area of the management municipality operationintergovernmentalProvides for and public co- theareamanagementplans: MEC and a municipality forsubmit environmental plan a copyfor must a localof theprepare affairs protected plan in toa areas.concerningconsultation protected in matters plan.requiredSectionthe province 62 contents contains for approval of referencethe management (s 60(2)). to the managementandperformancePerformance local protected ofIndicatorsof managedbiodiversity areas for ofand monitoring inprovincial thethose ORV Regulations under Control of vehicles in the To prohibit generally the DEAT / (s64(2)).forareas Municipalitiesenvironmental may be established may affairs be inrequired bya province the MEC to NEMA coastal zone. zonevehiclescircumstances,recreational and, in inthe certain coastal use to of protectedmanagementLocalProvincial Authority areas Authorityof (e.g.coastal and /the authorisingprovincialexercise powers authorities, agents. delegated to act toas them, by zone.vehiclesapprovingprovide in theprocedures of coastal the use for of andreservesSANParksNational protected proclaimed in Parks coastal under Act, the They must ensure that: the beenNEMA,requirements met; where ofapplicable, section 24 have of 1976). decisionsevaluatehavemunicipal sufficient applications withinofficers expertise a orreasonable employees and to render thetheytime certainrecord period;refuse circumstances;of applications decision contains under theycertainamend suspend, circumstances.specifiedpermits cancel or information; licences and/or in and thereTheregulation, ORV is conflict Regulations by-law between or prevail other it any wheresubordinate other wherevehiclesmadelegislation the inprior subordinate the relating tocoastal the ORV to legislationzone the Regulations useand of was comingORVNote: into Regulations Proposed effect. amendments were recenfly to the thedelegateauthorisespublished: deletion itsof theseprovincial regulationpower amendments to authoritieslocal 10 (that authorities). include to 1989ConservationEnvironment Act, 73 of thatofauthorisationProvides require the significance for activities because of WaterProvincialForestryDEAT Affairs / Department (DWAF) Authoritiesand / of thesuchfromListed municipal theactMties competent activities area.may requirebe authodty undertaken authorisation before in Legislation Activityltheme Aim of law Responsibleautho ti - environmentimpacttheirprocess actual/potential on the that (by precedes an EIA seriouslyperformsMunicipalities andamage activity may, or ifwhich detrimentallya person may Z disposalpermittingauthorisation), sites. of waste and the aresuchdirectiveaffect specified activity the to environment, such or(see to a take sectionperson such issue 31A).to stepscease a as Act,Marine 18 of 1998Uving Resources livingutilisationconservation,Provides resources forof marinethe long and term DEAl attemptmay,protectedThe Minister without to areas fish, maypermission, takeÇ'mpa"). declare or destroy Nofish marine person or any their exploitation, environment,matter,depositfauna and alterwaste flora, or construct or destroy dredge,any other theany discharge naturalpollutingbuilding or ofadverselycarrywithin that on sucharea. an impact activitymarine on whichprotected the ecosystems may area or theseprohibitedMunicipalities activities in are, these must unless areas. be aware authorised, that Theduringas Minister, a fisheries the preparationbefore management declaring of any areaan such area and National Heritage Destruction of heritage Management, National Department Municipalitiesaffectedplan, must by consult the may plan. withbe responsible organs of state for 1999Resources Act, 25 of resources, resources.protectionconservation of heritageand LocalProvincialCultureresponsible Authorities / Authority! for Arts and authorityinGrade the coastal3 heritagewas delegatedzone resources orfor to areas them. or areas where ofNational 1998 Water Act, 36 indudinqWater resources, estuaries. waterconserveTo manage resources. the and nations (CMA).ManagementDWAF I Catchment Agencies awhopersonA situationmunicipality occupies in control exists oras useswhichofan land owner the may or land aof cause, person land, where isa fromwatermeasurescausing occurring, resource, or to has continuingpreventmust caused take such pollutionorreasonable pollution of a enclosedisamongrecurring. defined other body as(Water things,"a of partially waterresource" an estuary, thator fully includes,is open which to andWherethe sea".) the an municipality emergency is incidentthe responsible occurs substancepersoninincident, the (i.e. incident involved personowns orthe responsiblethe was substance incident) in control for itsinvolved ofthe the theeffectsmeasurespersonnel relevant of authorities thetomust contain incident report andand the takeminimise incident tothe SeaProtection birds and Act,Seals 46 of Thecontrol Minister over exercises seabirds, ofProtection the capture and and control 8-8 DEAT prohibition.Municipalities must be aware of this i 973 Legislation producedseals and fromproducts seabirds Activityltheme sealskilling andof seabirds for the and Aim oflaw Responsibte autho ,' orprohibitedand seals.capturing seals. from Persons any shooting seabirds are animals.products of such Sea-shore1935 Act, 21 of theThe shore.regardedsea State and ThePresident theas Minister thesea- owner is may of shorerespectgrantingProvides and of offor the rights the sea-sea in and authoritiesMinister/local Thetosea-shoreauthority, Minister enter into mustwhere or anysea consult any leasein which portion orwith permitit a proposesof local the definedpurposes.andlet any sea-shore portion as Thethe ofwater forsea the certain is andsea for shoreportionsthe alienation and of thethe sea.ofsea- Whereareacertain of theactivities,jurisdiction power is has ofsituated a been local withinproperlyauthority. the territorialwatermarksea-shorebed from waters, to the withinincludes low- and the the onconferredexercisedelegated, it to the the under seaa powerslocal and the authority sea-shore. Healthwhich areAct,must 1977 Thethewater high-waterlow-water Minister and land may mark mark.between and sea,A localmake the authority removal regulations, mayof any forbe material therequired use fromof to the localunderpowersdelegate authority, section vested any of3(2) in the him to a shorethedepositing sea-shore,sea are and situated or sea-shore discharging where within the and orseaof the adjoiningmaterial and sea- in Thesellsubject Minister or donate to may,conditions any portion let, applyRegulationsits area to ofa itsportion made jurisdiction. of by the the sea Minister situated to anyof the local sea authority, and sea-shore jurisdictionwithinadministermay or confirm adjoining of athe localpowers regulations the authority area or duties of onand theto he local jurisdiction.regulationlocalauthority. authority Thewithin Ministerbofare its area dedaring must of consult any a whereA localnewspaperregulations it authority will apply. circulatingmust desiring publish toin maketheit in areaone approval,shoreownershipWhere it the may, make localof witha portionregulationsauthority the Ministers of hasthe for sea-- that theRegulationsportion land of owned the made sea. by maythat localalso applyauthority to andMarine Civil Pollution Liability) (Control Act, 6 environmentProtection from of the marine TransportDepartment / of incurredTheabutting Minister suchby a may localportion ratify authority of the the expenses sea-shore. for of 1981 causedthedeterminepollution loss by orand liability damagethe to for (SAMSA)SafetySouth AfricanAuthority Maritime haveextentdischargedremoving been to whichoil incurred from pollution those any by ship,fromexpenses SAMSA. tothe the sea could Eastern Cape Nature Nature Conservation ships.dischargeProvides of foroil thefrom Provincial Authority / Local authorities are charged with Conservation Ordinance Legislation Activityltheme managementconservation andof Aim of law Local Authonty Responsible authoti !çTffestablishingexercising local various nature powers reserves and andduties sibF1 protected areas. authorisationscancellationreserves,in respect includingof ofthose issued.permits local the orissuing nature or

8-10

Estuary management activities of the elhekwini Municipality

Overview otthe coniponeflts of the oThekwlnl Munilpalty and their involvement in Estuary)4anagement(Mther_persComm) Geographic Information Development Planning Water and Sanitation Engineering Parks, Leisure and Other components of and Policy Office (GIPO) and Management Culture the municipality General Coastal and Estuary Management Activities Coastal and Drafts the eihekwini Drafts the eThekwini Estuary Policy coastal strategy. Environmental Policy.

Drafts the IDP. Coastal & Chairs the elhekwini Member of elhekwini Member of eThekwini Member of eThekwini Member of eîhekwini Member of eThekwini Estuary Co- Coastal Working Group. Coastal Working Group. Coastal Working Group. Coastal Working Group. Coastal Working Group. Coastal Working Group. ordination Coastal and Initiating coastal Drafts various levels of Estuary Planning management plans. plans that cover the coast and estuaries. Initiating estuary management plan. Draft the eThekwini Environmental Services Management Plan. Monitoring Undertakes eThekwini Monitors water pollution Monitors coastal Health component State of Environment and water quality, processes. monitors coastal water Report. quality. Maintenance Maintains municipal public open space including some coastal and estuary areas. Human Activities that Impact on Estuaries Municipal action to control activities is shown in greenMunicipal activities that impact on estuarios aro show in orange Abstraction of Supports DWAF in water from controlling abstraction of catchment I water. estuary Effluent/pollution Supports DWAF in Control and management Health component acts on disposal in the permitting polluting of the storm water system human health hazards catchment or activities and prosecution through which illegal and gives health estuary in terms of by-laws. effluent disposal takes warnings. place. Disposal of sewerage effluent into certain rivers and estuaries (and some marine outfalls). Activities that In extreme cases of change the negative soil erosion sediment load building inspectorate would act in terms of by- laws. Dredging Dredging of Durban Bay.

8-1 Overvlw of the components of tIee.I.,kwlnl Municipality and thIr involvement In Estuary Management (Mather, pers. Comm) Geographic Information Development Planning Water and Sanitation Engineering Parks, Leisure and Other components of and Policy Office (GIPO) and Management Culture the municipality Harvesting of Monitoring and reporting Monitoring and reporting living resources to DWAF and EKZN to DWAF and EKZN Wildlife. Wildlife. Estuary mouth Monitoring and reporting Opening mouth of manipulation to EKZN Wildlife. Manzimtoti and Mgeni to Setting policy for manage water levels. municipal action. Installation of a pipe at Sipingo to increase tidal exchange. Non- Management of consumptive recreation use of beaches recreational use and associated recreational areas in terms of Sea-Shore Act regulations for Durban.

Management of Boat Launching. Development of Permitting and control of Construction of water and Construction of Construction of transport structures that encroaching structures sanitation infrastructure, engineering infrastructure, infrastructure. encroach on the through municipal plans water body and zoning schemes. Peripheral Permitting and control of Construction of water and Construction of Construction of transport Development peripheral development sanitation infrastructure, engineering infrastructure, infrastructure and other through municipal plans infrastructure. and zoning schemes. -OD Outcome of workshops with three coastal municipalities describingTheBackground second waysphase to of the Eastern Cape Estuaries Management Programme aims at integrate estuary management into IDP processes. Two achievebroaderprojectKwaZulu-Natalmunicipalities deliverstheproject following: (eThekwini)inteam appropriate the engagesEastern were products, inCape chosena session (Port a as project withStcase Johns management studies.process and Since Buffalowas of designed iteach is City) essential municipality and where thatone thethe into contextinformationissuesan understanding they of the face on IDP; how related of theireach to IDP themunicipality processes;management deals of estuaries;with estuary related issues in the adaptedBased and on thenew outcome ones developed of workshops, if necessary. theandinformation existing These knowledge. guidelines guidelines and knowledge and and tools tools requirements, would would aim be and how to package this information Workshopsresearchmunicipalityto Buffaloform the into City basiswere tothe Municipalitybe best heldof conducted interactive ways with toeThekwini oninclude in learning 3October August estuary Municipality sessions 2005. in issues East These with onLondon.into 2 the theAugustsessions IDP.municipal A meeting in wouldDurban staff laterguide andof each on withthe 23 outcomeSeptemberOutcome of these wasof workshop heldmeetings. with with Port eThekweni St Johns Municipality Municipality This section reports on the Issues highlighted in the workshop are listed as follows: WillTheOn thetherenew ground land be legal use implementation managementchallenges? of system; policy/plans is difficult - keen on development; RestrictionsExisting100-year development flood in the line primary -rights; no legal coastal backing; zone are needed; ANeedTightening policy to orbe planofable procedures mustto apply be able policiesto address to be and expressed ongoing plans on tension insite; land aboutuse management development schemes; limits; ThereTribal Authorityis no land Areas use scheme; - informal areas; LegalityHaveImpacts no of authority inextending upper - catchmentstenure; land use controls - especially into Tribalinformal Authority activities; Areas; WhatSustainableIDP isis annot acceptable developmentclearly scheduling change is not inpriorities; clearly an estuary? defined; systemsAllNeedRivers eThekwini to throughand prioritise estuaries water waste estuaries comes arewater going from fordisposal; protectionto the be Umgeniused versus for Riverwaste "work andwater horse" is disposal;dispersed estuaries; into other ThereA suchDWAFmethodology are as and DWAF,issues DEAT is requiredofDEAT, haveco-ordination EKZNa to major prioritise Wildlife, say with inestuaries; otherestuaryDLA; estuary management; management role players ReserveDeptRapidThe city does Reserve has Determination not not have Assessmentdecided the toolsstops the usetodoes at protect thefor not eachecological helpassets; estuary; at low level level and planning. does not Environmentaladdress social DoandClimatedevelopments? weeconomic changeneed issues; to eThekwini- what impact has willin the this past have bought on estuaries? some properties; look at mitigatory measures for historical inappropriate MuchInformationmunicipalities;Should data be available management;some level but itof is delegationfragmented; of responsibilities to well capacitated Potential solutions HowNeed do awe decent make riverresearch monitoring useful systemto end users? - problems are responsibilities, funds, etc. 1. Get funded mandate from national authorities to do Reserve Determination.mandateThereltDWAF takes is ahas froma precedent long funding DWAF time forbuttowith geteThekwini is money. notthese spending. mandates Water and - theSanitation national Department departments getting are not a 3.2. TribalMeet Authority national Areas:DWAF to strengthen co-ordination with national departments.keen. AwarenessLook at economic / education. sustainability issues to encourage people. 5.4. ThereLessons is learntcohesion from betweenother municipalities departments would but be need very tohelpful. have better informationLook at lessons to from Eastern Cape Estuaries Management Programme. 6. Issuessupport of activities: prioritisation of estuaries: Need to definerapidly roles get detailed of systems. Estuary Management Plan. 7. Defendable lines on maps. ThisResearchlt should has been be programme simpledone from to docould an a ecologicalranking provide exercise a perspective. system for for eThekwini prioritising estuaries. estuaries. 8. How can you take away existing rightsOutcomeinterest? especially of workshop in light with of huge Buffalo financial City Municipality vested Discussion notes ManagementspecificThe Coastal section Zone guidelines for Managementestuaries. for specific Plan estuaries (CZMP) are is a included plan of thein the lOP CZMP and includes - there is a theTheinformation key leadershipCZMP estuaries identifies on rolewho and comes should the BCM need from willimplement to need within create to BCM. driveandEstuary the this capacityManagement initiative. available Forums to implement.for some of TherethereforestrategicchallengeCapacity is arelationshipssignificant.presents memorandumbecause a challengethe between municipality of understanding -the there clusters is aunlikely need andplanned otherto to be increasebetween spherescreative ofDEAETitsin governmentaddressing capacity. and BCM The thisare TheNahoonTherethat includesprocess is Nature also someof potential Reserve,developing transfer to DEAET secure ofthe funding CZMP is funding to has BCM. theinvolvedfrom removal provincial extensive of alien sources consultationvegetation. e.g. at with the TheAvarious availablefinal CZMP draft stakeholders willfor of publicthebe finalisedCZMP comment.and levelswill in Septemberbe of produced government. 2005. at the end of August 2005 and will be provinceProblemsbeenGetting difficult. participation and with they understanding get from a levy some each legal of the year,responsibilities national but there and are e.g. provincial extensive jetties departmentsare problems managed withhas by 8-4 authorityillegal jetties as they that receiveprovince no is support not addressing. from province. BCM would like to be delegated the fromTheBetween(ADM) Sea-Shorea boat and Nahoon is BCM not Act permittedneeds Point delegates andto work in Gonubie thesome ADM. Nahoon powersPoint Estuarythere to Amathole is abecause closed District marine the estuary Municipality area. formsFishing NationalpartBCMManagement of does the marine not Bill. have area authority in terms below of the theSea-Shore high-water Act. mark as the Marine Living legislation is in flux - in particular the National Coastal Zone visibilityPublicManagementResources could awareness Act have (MCM)). allocates been of the better. this CZMP responsibility process hasto national been a DEAT challenge (Marine - getting and Coastal public andCoastalconsultation.The somemanagement by-laws of the arechanges guidelines in the areprocess given starting inof the beingto beCZMP enforced.revised, have draft notOn involvedtheis currently smaller broad estuariesavailable public otherDepartmentDWAFconcernsdead authoritiesslow has relating putspeedof Transport in believe toplace restrictions boat theydocumentation speed.and haveSAMSA are a planned.role and regarding to this play Therecreates in estuaryboating are problems. ecological management.on estuaries, This andshows as safety have that ThereTheresolution.priorities. CZMP is a 5.5% BCMcurrently cap has on doesfunded budget not posts increases. link forto theNahoon BCM Naturebudget Reserve - problem through of competing a Council TheBCM CZMPIDP is striving is reviewedmade to someget every the specific IDP year and projectand the at Budget therecommendations next aligned. review, some to the of IDPthe CZMPunit. issues willenvironmentalCouncilThe be included.challenge and within management. is having the IDPpersons process. to lobby The for councillors environmental are fairly projects committed within the to AtTheresuch the creation as are the examplescoastal of BCM, villages. the of municipalityMCM supporting received various non-funded mandates investment in estuaries where frominvestmentProjectsEngaging the local needhas specific stakeholders been to be madepeople reflected byis who beneficiallocal in livethe stakeholders atIDP and an even aestuary useful if there tohas assist is been no management.funding a challenge, from Council buy-in termsDivergenceprojectsas funders of communication are willbetweenhealth, not tourism,look politicians and at political projectsjobs, and poverty agendas. officialsthat arealleviation is not a real reflected and issue. legal Therein compliance.the arelOP. problems Important in targetedPoliticians education should and be awareawareness of estuaries is required. and Alsoassociated need politicians legislation to and be aware policy - politicians.Budgetingorganisingof the new specificnational for upgrading and acts appropriate and of their sewerage implicationstraining; works ongoing for is local trainingnot government.seen is required. as a priority SALGA for is ThefewTheremanagement. politicians municipal are 45 wards have planning anin BCM,interest section but in onlytheshould coast. five be along involved the coastline. in the process As a result of estuary only a Townedgeandlandcoastal thisplanninguse. along buffer is Problem inappropriate. estuaries zone,has beenis nodes, thatare includedGuidelines includedurban drawn edge incoastal on thethe is appropriate on plan.CZMP maps the Land other andprocess developmentuse cadastralside outside andof the lineshas the Gonubieinside indicatedurbanwith the details Estuaryedge urban a ofis Allisbechallenging. the a difficult problem green toareas because develop around itin is these allthe privately Nahoon areas. owned. Theestuary land we surrounding have been the fenced Gonubie and Estuaryit will AThere Generallysensitivities.challenge is specific is BCM's that input different fromcoast the andconsultants CZMP to the have SDF. different ideas about ecological estuaries are intact without many dense operated.InSomedevelopments the Buffaloprioritisation No policy Riveron estuaries. of estuary,for estuaries ballast there water.has are taken Also serious place. removal problems of paint with from the ship way hulls the port in the is theopportunityNationalBecausedry NPA. dock This ports isit tonotis authority encourageaAuthority controlledport, the is (NPA). reviewing majorBuffalo and theclientsBCM is paintEMPs not has to underputscrapings attemptedfor pressure its the large jurisdictionare many onports. dumped the times port.There of toin SpoornetBCM interacttheis also estuary. but anwithalso the needoptimizationintoTherehas atwo tobig is be uncertaintyestuaries.impact. introduced of biodiversity Thisabout to prevent is how buta debatable tocan the manage impactspread issue. the theof thegrowth salt Mangroves stands. marsh of mangroves Removal habitat. contribute ofLimits introduced the to treesmay the BCMaredisturbed.couldISO a good has1400cause structured Ineducationally framework addition ecological the to opportunity givemangrovesestuarydamage specific management in for could proceduresthat the largeNahoonbe a threat process-areas also Nature todrew of recreationalaround Reserve.mudbank on the an National EMSuse.would They andPolicy be WhatregardingBCMfor Sustainable wouldhas thea helpgood proposed Coastal to relationship sell estuariesDevelopment.marine outfall.with better? DWAF. There has been much interaction o Better understanding of the value of estuaries 8-6 o DepartmentEstuariesresponsibilityincludesEnvironmental sanitation are therefore fallseconomic Cluster within and has was waste driversthe an allocated Community interest management. - the Local30%in estuaryServices of Economic Somethe managementBCM cluster of theDevelopmentbudget e.g.Coastal recreationalthough Office's this KeyOutcome issues of workshop with Port St Johns Municipality theFollowing Port St questions Johns Municipality predominantly identified to clarify theThere keythemunicipality estuarystructure is a need management and(officials for functioning capacity and issues councillors) of building estuaries, as: onamong the value local of residents estuaries, and their within functioning the financingwereThereand identified theirare basic limited management. serviceand financial prioritised delivery). resources and the to addresstop priorities all issues focused (projects on addressing within the IDPand ThereSiltationmunicipalitygovernment.and ismanagement. no of Environmental the to In appointMzimvubu addition This an neededManagement environmentallobbyingEstuary, to acommencewould key Plan management economic begin to contextualise soon by asset the officer.as LEDa for requirement estuarythe Manager town planning of of forPort local the St theAJohns, sectorsbroad Mzimvubu is institutionala (particularly problem. and other base the catchments. Department is absent from of Agriculture) which to lobby on land various use management government in WayThe forward following actions were agreed to: The municipal LED manager would recommend to the municipality that an workshopcouncillors,estuaryTheestablishing project management and officials ateam programme,the would and capacity other supply facilitation key building a stakeholders. recommendation and workshop other logistical The be municipality to conducted arrangements.the municipality wouldinvolving host on both thethe project team would assist in identifying participants, Conclusion theprocess municipality. and provisional framework for an Environmental Management Plan for oneThemunicipalities ofthree the most thatwell covercapacitated almost municipalities the full range inof themanagement country and capacity. Port St eThekweniJohns one is municipalities that hosted the workshops are fine examples of extremes.of the least. Inevitably BCM falls each at a municipalitypoint probably has midway its own in particularthe spectrum environmental between these and 8-7 management isissues. paramount. With problems It is this process an inescapable that needs fact, to bethe supported importance as of a mattersound thatmanageenvironmentalassetsof urgency. can andsupportthe environmentMunicipalitiesunderstand department local management underthe needsneed mechanisms their to toprocesses. be jurisdictionexamine informed to theprotect and about capacity put their intothe of placevalueintegrity. local a of municipalitiespermanent environmental The national body to Maximising the socio-economic benefits of estuaries througha rationale integrated and protocol planning for andincorporating management: estuaryand enhancing values ¡n planning and management Jane Turpie, NhlanhlaTakalani Sihiophe, Maswime Alan Carter, and Stephen Hosking 2006 EnvironmentalConsultants Anchor EXECUTIVE SUMMARY Programme funded by the Water Research Commission. TheThis Introductionfirst study phase forms of thepart programme of the second aimed phase to of the Eastern Cape Estuaries Management Research promoteneedconcentratingestuarydevelop to managementbea the deeper seen importance in thein understanding the Eastern processes context of considering Cape, of of andall itthe Southwas tools issues estuaries recognised Africanto enhancethat confrontinestuaries. thatdevelopment estuary many estuary The managementof secondthe managersplanning issues phase andinvolved decision-making.and of will to the develop supportare programme relevant additionaleffective to will or While facttheymanagement thatare highlydevelopment of threatenedestuaries. to the due coastal to demand zone for has coastal lagged development behind inlandEstuaries and areas, freshwater are Southacknowledged supplies. Africans to Dueare be in toone thethe of the most productive and valuable habitats on early, yet estuaryexpressionplanningofunique planning positionlevel. and ofaffect development conservation of beingestuaries, able planning. and fallingto plan development into timeously three main planning.for coastal categories: Management conservation conservation gives and development. effect planning, to these water Several plans resource attypes the All of these are interdependent. Land use planning is a spatial Specificestuaries,the value aims of land-use estuaries of the study planning, and are: estuaryTo integrated elucidate based enterprise developmentwhat is known development planning aboutThe the intoresearch (IDP) economic strategic and objective valueother adaptive ofrelated of estuaries this management studyprocesses. and was measurement ofto inform the thereof development of protocols for incorporating Toplanning examine howthehow potential estuarytheeconomic values valuationeconomic ofvalues estuaries can roleof estuaries enhance ofneed estuaries to needthebe takenstrategicin tointegrated be into taken adaptive account development into managementinaccount water planning allocationin local-scale of estuaries land-use The status and conservation ofTo Eastern explore Capebest practice estuaries in enhancing the value of estuaries through enterprise development challengecharacteristics.changesbetween inestuaries for salinity conservation andwith otherbiogeographical planning characteristics. and zonation, management. Each estuary Nevertheless, typeis fairly Estuariesand unique size, as andareinlong terms dynamicwithin as ourof estuaries its understandingsystem physiochemical basedwhich supportonof a rather uniquely adapted biodiversity, which varies This, together with our imperfect understanding of estuarine biodiversity, presents a chemicalbiodiversity health is imperfect of estuarine it makes systemsHabitat sense as well alterationto concentrateas their or more loss, efforts conspicuous e.g. dueonThe theto main reclamation taxa.maintenance problems for affecting ofdevelopment, the physical estuaries marinas and in the or Eastern harbour Cape, construction as well as the rest of South Africa, are: Losssediments.SedimentationOverexploitationChange of system in mouth variability, andof dynamics resources, siltation, due due especiallytodue to management changingto catchment linefish freshwater for stocks. erosionconstant inputs andconditions or lack artificial of (e.g. flushing breaching in estuaries of silt and/orwith marinas) marine IncreasedChangesRecreational in turbidity salinity disturbance, due due to to siltation.duechanges to intense in freshwater human activityinflow or mouth dynamics Pollution,estuaries.Changed e.g.nutrient due tostatus stormwater due toThe increasedor sewageabove threats inputinputs of to nutrients estuaries or are increased linked to water a number retention of underlying time within causes including accessibility, humanmarketlack of populationenforcement,failures and growth. policy inappropriate distortions, regulation poverty systems and wealth, and consumerplanning,Current and attitudespolicy can and ultimately and legislation preferences be traced does and notto provide adequate protection to estuaries. They are resourceslevel.Departmentmainlycontrolled under bywithin of a twoEnvironmentalplethora estuaries government of (evenacts Affairs none indepartments: ordinary of and which Tourism, protected pertain Department with toareas) estuariesmanagement are of Watersubject in particular. being AffairstoWater the devolved MarineTheir qualityand Forestrymanagement Living andto the quantity Resources provincial and fallsthe are controlled in both freshwater and marine environments. Living ingeneralprovincialbeenAct. the relativelyface the scale.of level inappropriate ad Developmentof hoc enforcement in the planning. past, is of controlledbut legislation will in futureat affecting the besite guided levelestuariesMarine byby EnvironmentalIntegrated Protected is weak and DevelopmentAreas EIA Impact willis effectively provide Assessment. Plans additional attoothless local to protection up to the high tide mark. Planning has In mind: Guidelines for a maintained.conservationamongMaintain/restore estuaries strategy the and haveecological those already between integrity been estuaries, ofdeveloped, estuaries, their with by catchmentsensuring the following that and the goals otherecological in ecosystems interactions are includesrepresentativeMaintain/restore (for all setestuaries): of the estuaries health isof maintainedestuariesprocessesmaintenance in/to in as a close good within toof to estuaries,theirthe excellent naturalpristine condition, magnitude,state as possible.assuring variability Thisthat aand frequency of natural physical species.taxacommunitiesmaintenance from any in estuary terms ofof thethe of othernatural naturalsize, than structure taxonomic characteristics by natural and diversity functioning, processes, and of variability all through and estuaries, without sustainableof estuarine without the introduction utilisation,loss populations of indigenous of and alien and developmentmanagement(iii) and and water (y) resource planning. creation of conditionsThe strategyand incentives includes that (i) researchsupport conservation,and knowledge management, (ii) regulation and enforcement, rehabilitation. Elements of the strategy will be informed by conservation, (iv) monitoring and adaptive The economic value of South African estuaries Estuaries, like other ecosystems, offer a range of goods, services and attributes that generate biodiversity.contributecontributesthevalue ecological-economics and tocontribute to economic economic to production human production. literature, welfare. or savestems The costs, from concept andthe perceptionattributes of ecosystem relate of ecosystems goods to the andstructure services,as natural and organisationpopularised capital which ofin Goods are harvested resources, services are processes that OptionEconomic and ValueNon-Use concept. values. The TotalDirectEnvironmental Economic use values Value and may resource of be an generated ecosystem economics through comprises typically the consumptive Directuses aUse, typology Indirect,or non-consumptive of values described use of in resources. the Total otherconsumptiveIn the sectors case of (fishing of South the economy,and African bait collecting)estuaries, or Indirectthat contribute and most,use non-consumptive values if to not net are all, economic values of this (e.g. generated use outputs boating, is recreational, elsewhereby birdwatching) outputs inandfrom the activities.includes estuaries economy both that by form inputs into production by savinginnursery the on future, functions.costs. and These the valueoutputs of knowingareNon-use derived that values from their include ecosystem biodiversity the value functioning is protected. of having such Although the as option water far to purificationless use tangiblethe resources and than (e.g. genetic) of estuaries differenttheresources, above components values, sometimes non-use of valueexpressed values and underin are the reflectedformdifferent of donations. contexts in society's or circumstances. Awillingness suite of methods to These pay isto have availableconserve been toapplied these measure environmental values, each of which is suitable for theirworthestimatedinto variousits contributioninfancy. some estuariesto RO.7 be worth to- Rlover estuarine .1some themillion pastR3.4 and per 25 million marine annum.years, (net withfisheries The present research economics has value). onbeen the value Subsistence estimatedvalue of Southof South to fishingAfrican be African just in estuaries under Knysnaestuaries Rl inestuarybillion stillterms only per isof For example, the subsistence value of mangrove harvesting in Mngazana estuary is inandpriceannum. Rltourism national .4premiums -Several R2 expenditure. billion.economy. associatedestuaries In Knysna, make with proximitya substantialthe estuary to estuaries, contributionitself is estimated in Knysna to the toreal this account estate is estimated for sector about todue Rlbe tobillion in the the propertyper order year of People also spend a substantial amount in visiting estuaries, contributingSouth Africans to the inlocal general express a substantial non-use value for estuarine biodiversity,Conservation with planning an estimated total annual willingness to pay of R93 million per annum. AgendathatConvention, South 21, Africa the theRamsar has World made Convention, Conservation to the international the UnionNairobi Policycommunity, Convention, framework such theThe Abidjan asand protectionthe the UNConvention, UN Convention Frameworkof estuarine the onWorld Conventionbiodiversity Biodiversity, Heritage ison already provided for to some extent by the commitments theminimumClimate formalisation Change. sets of protectedareas to be areas protected. of various There categories. is provision in legislationConservation to mandate planning these has plans become though increasingly systematic, and now typically involves setting Backed by these, conservation planning sets the bottom-line in terms of defining addition,considersandtargetsof thean forunderstandingselection it notisconservation, becoming only of representation new of increasingly socio-economicsites.gap analysis The but latterrecognised alsowhich pressuresstep maintenance assess involves that and conservation the varyingvalues. extentof ecological levels to planning which of and sophistication, targets cannotevolutionary are take already placeand processes. increasingly beingin isolation met, In specificallySustainableSubtropical on Development Thicket estuaries Ecosystem which Project. inform Planning conservation (STEP) planning project forThere andestuaries the has Wild in been this Coast province.a flurry Conservation of conservation and planning in the Eastern Cape recently, including the In addition, there have also been several national level initiatives identifyingfishvaluesbetween to the(involving conservation marine the optimal residential environment, and spread development developments, ofand conservation option fishing,and existenceand etc.) development and value otherUltimately, of types biodiversity.among of conservationvalue, and The withinsuch challenge as estuariesplanning the export lies pertainingthat inof to estuaries will need to consider the trade-offs In general there is essentially a trade-off between direct use maximisesWater resource the sum planning of these values to society. Managementimpactsdirected onmeasures water Areas, resources), (defining and the ademand reservereserve management for will each be determinedestuary, and monitoring.river, followingWater etc.), Thesourceresource the country classification directed planning is divided controls is of intogovemed each (to 19 control waterWater by the National Water ct of 1998, and involves resource considerationdoingresource this inis tounder ofa classthe development. trade-offs which denotes ìnherent the in future water desired allocation. state ofClassification, health of that resource. which will The secure system a forcertain amount of water for each estuary, The higher the level of protection of an will involve efficienthealth.activitiesbeestuary allocated Catchment (i.e.use and theofto the water. watergreater economic management usingThe proportion optimum activities.value can ofand freshwateraffect natural The people's thesetrade-off flow flow wellbeingtrade-offs, that isinto isbetween reserved estuaries generatedfor example the for mayeconomic the by by be ecosystem),estuaries providingdefined value inas generatedincentives thedifferent the less flow water statesforatby whichmorethose can of theDevelopment marginal benefit planning of water use is equal to the marginal cost due to reduction in estuarine quality. developmentMunicipalities)Municipal Systems plans have (lOPs). Act, to undertakewhich As the requires lOP an is integrated athat legislative all municipalities development requirement (i.e. planningitDevelopment Metros,has a legal processDistrict status planning Municipalities to and produce has supercedes been integrated and rather Local all ad hoc in the past, but has now been formalised under the government,inplanninglocalother a municipality governmentsplans instrument that corporate guide for to awhich cope fivedevelopment service year guideswith providers,period. their and at developmental informslocalIDPs NGOs government are all andalso planning, theroles supposed privatelevel. and budgeting, Theresponsibilities. sectorto guideIDP withinmanagement process the activitiesthe lt is municipalis one the and of ofprincipal otherdecision-makingthe area. key spheres strategic tools for of Theapproximatelyinvolvement IDP is reviewed of 6 a- 9number months annually of to whichstakeholders. complete results an inIDP Because the which amendment isof closely its participatory of relatedtheIntegrated plan to should thenature development municipal it itbe takes deemed budgeting planninga municipality necessary. cycle. is a very interactive and participatory process which requires budgetprojectsissues/problems, (i.e. to addressallocation which the of determine issues.internal Aor veryits external vision, critical fundingobjectives phase to of theand the identified strategies IDPIntegrated is to projects) followedlink planning as by this the to willidentification the ensure municipal that of Development Planning is about the municipality identifying its priority developmentframeworkimplementation (SDF)', areas of projects andshowing conservation-worthy and desired hence developmentpatterns areas. of land is directed use, directions by theEvery IDP. of municipalitygrowth, urban is edges,required special to produce an indicative plan, called a spatial development lt must also produce a scheme, called a land use (LUMS)andtomanagement each the erfisscheme binding. in systemthe has municipality. to(LUMS)' conform recording The to theplan plan. theshould landThe be planuse flexible and (SDF) development enough is a guide to accommodate torights development, and restrictions changing and the applicable priorities, scheme takeassessmentareasimportant the and responsibility to the intonote inshore their that spatialforestuaries marine EIAs, development environment.in are theory particularly to frameworks,help Municipalities resolvecross-cutting, formingenvironmental must given partEnvironmental incorporate oftheir andtheir linkages planning lDPs, a issuesstrategic and with conflicts thatare entire environmental cross-cutting,they (DLA catchment now 2001). also which means that they have to be addressed in lOP. lt is implicationsbelOPs resolved are thus and/orfor explicitly some avoided. district required and to local consider municipalities environmental and their issues developmentRecognition and indicate planning. of how the negativevalue The ofmain impactsestuaries opening will and their appropriate management could have significant trade-offshighlightsprioritization.thisfor this process in theinvolvedenvironmental TheIDPthat Stateprocessissues in the of values,development relatingEnvironmentis in the including toState estuaririe issuesreporting of thoseEnvironment that values ofshould affect estuaries. would includeReportingestuanne be a identifiedresource health.during theUltimately, economics and Analysis included it phase. componentwill inbe the ltnecessary is issues duringwhich lt should also elucidate the nature of the toIntegrating sensitise lOPestuary planners values (ranging into planning from local and to nationalmanagement government actors) to estuary values. resourcethespecificallyof considering fact that planning link water both with embodies isenvironmental conservation a prerequisite the goals planningand for ofsocio-economic both economic and development is only efficiency, goals,poorly and althoughecologicallinked conservation.The differentto lOPwater sustainability does typesresource not of have planningand planning, asocial provision are equity,despite all toon a trajectory of being increasingly integrated in the sense Development and water whereashierarchyhow environmental conservation of constraints, planningvaluation with does conservation(e.g. notpertaining necessarily planning to estuaries) seek providing to achieve informs theThe bottomeconomic the schematic process. line efficiency. in below termsThis requires proposesof the constraints defining how the a different types of planning should ideally fit together, and placeadaptiveprocesses.planning.on other at a managementtypes Managementhighly Decision-making of localised planning. butplans scale. is neverthelessare within then managementguided constrained by the goalsstructures by theset aforementionedby is conservation enabled by goalsand the developmentprocess and plans, of strategicand planning takes Water allocation will provide one the main constraints for development requirements,making.where the lack any of understandingconservation beyond of ecosystem that is optional or biodiversity and willAll onlyvalues decisions occur can if leadinvolveit is deemedto distorted making economically trade-offs. decision- This is Inparticularly general, whilepertinent there to biodiversityare certain conservationchecks to meet minimum biodiversity conservation valuableoffsminimumworthwhile.management between alternativelevel the that decisions benefits is formset out of of such indevelopment. additional most as conservationwhere conservation to locate planning conservationand exercises. the opportunity zonesThis involves incosts an estuary. inanalysing terms of the the trade- most Ideally, we need to determine the optimum level of conservation for society, rather than the At the very local scale, trade-offs are also made in Valuation is estuariesmechanismsnecessary include to to inform theachieve following: these conservation trade-offs goals. as well as to design effectiveThe sorts incentive of planning measures and management and financing decisions that are likely to maximise the economic value of Local MunicipalityDevelopment Spatial LandPlanning use Management Plans 'Q)lu D DevelopmentFrameworkIntegrated + ç'fde-offs between socio-econom'\os -. l0 oEa) Planníng that can be allocatedpper limit in termsamount oto ofdevelopment water \\that is conserved to different degrees/,/deferminesvalue amount of alternative of additional land land uses w U)t Water Resource Planning, Constraints alternative types of development/Trade-offs betweenland usevalue at ofa broad scale aoC CD 0)aao C-) t)E Catchment (water allocation to different sectors and areas) Management Plan different types of developmentdetermines overall level of oQ)a> û) Water Resource Classificationenvironment lwater allocation between and consumptive use) k value ofTrade-offs water in aquaticbetween ecosystems socio-economie vs alternative uses w o>=E 'o'0 ci) t Bottom lineareas in terms to be ofprotected Constraints bottom determinesline is allocated how tomuch environment more than the oG) and buffer zones opportunity costs of conservationSpatially-explicit analysis of economiccost-minimising benefits vs solution to determine providelargelyAt least natural 20%such of as state, the nursery estuarine providing area area opportunitiesfunction, within eachas well for biogeographical maintaining as providing the opportunitiesshould valuable remain services for conserved wilderness that they in a conservationexistsremainsWhereexperience, estuaries undeveloped, spiritual needs. are enrichment developed, preferably and propertyas research. a nature values reserve. would be enhanced ifin one many side South of the African estuary estuaries, and can successfully combine development and This is a highly successful model that alsoachievepreventsconsumptiveSince a farthe some oneeasier recreational usestype conservation way whichof user'sof limiting valueare utility goalsoften consumptiveof from estuaries incompatible,while impacting not useprohibiting their thanon another's. valuebag consumptive or can effort be limits.maximised use altogether. by zonation, Zonation which is is derived from multiple consumptive and non- lt also provides the opportunity to developmentprovidingEnhancing incentives the of value Community-Based to of communities estuaries through Naturalto protect biodiversity-based Resource natural resources EnterprisesThe enterprise inprovision Africa.(CBNREs) ofdevelopment livelihood which strive support to reach is commonly a asserted to be one of the most pertinent ways of Out of this has grown the cansymbiosis benefit between the local nature community conservation, members, sustainable private sector development operators, and NGOS, nature government tourism. These and civil enterprises society. fundstheThese market, orinclude investment level the ofsize infrastructuralpartners, of the resource, and thedevelopment, levelits sensitivity of connectedness the to skills impacts of thewith andCBNREs community, nationalconservation vary and availabilityconsiderably, internationalsignificance, of investment marketingwiththe size the ofsize of the enterprise being determined by many factors. haveareagents, poorly implications the developed size of for beneficiaries, atthe Eastern CBNRE Cape property in relation estuaries rights to economic,where arrangements this kindecological, ofandA arrangementcombination community political andwould ofcohesion. factors social be desirable. suchsustainability.Most as of institutionalthese design, legitimacy, livelihood support, and subsidy support.systemsThe success directing or failure change of the in CBNRE feeds back into the internationalThere are and three state main level types social-political of business model. Community owned and operated enterprises are policies, procedures and practices for conservation and development developmentcommunity'scombineoftencharacterised a lack the sound of resourcesfor by secure thelack business rural of property to institutional poor. optimise acumen Community rights the capacity,and over balance access -the public clarity resource. betweento capitalsector on roles, wise thatpartnerships privateresponsibilitiesuse of sectornatural operate operators resources and in aaccountability, similar posses and way. economic with andthe Community-private sector partnerships successprojectsevidenceof CBNREs ison that highly all contributes theyfour variable. dimensionscontribute to Therefore, the to of reductionconservation sustainability a need of stillpovertygoals. described remains The in ruraleconomicin to this find communal document.There enterprise and is ecological overwhelming areas, models although sustainability that agreementwill theredemonstrate of is theseamong authors on nature-based enterprises that establishment little TABLE OF CONTENTS 1.3.1.2.1.1. INTRODUCTION STRUCTUREAIMSBACKGROUND OF THESTUDY OF THEREPORT 3ii 2.3.2.2.2.1. THE STATUS AND CONSERVATION OF EASTERNPROBLEMSEsTuARINEINTRODUCTION AFFECTINGBIODIVERSITY CAPE ESTUARIES ESTUARIES 65 2.7.2.6.2.5.2.4. THEGUIDELINESCURRENT ROLEULTIMATE STATEOF FOR PLANNING CAUSES OFA CONSERVATION ESTUARINE OF THESE BIODIVERSITY PROBLEMS STRATEGY PROTECTION 1312 98 3.1.1.1. THE ECONOMIC VALUE OF SOUTH AFRICANWHATINTRODUCTION ESTUARIES IS 'ECONOMIC VALuE'? 1414 1.5.1.4.1.3.1.2. THEVALUATIONTYPES VALUE OF VALUE OF ASMETHODS ESTUARIES:A GENERATEDPR1MARY ANTOOL BY INTERNATIONAL ESTUARIESOF RESOURCE ECONOMICSPERSPECTIVE 19181615 4.1.1.6. CONSERVATION PLANNING INTRODUCTIONVALUATION CASE STUDIES OF SOUTH AFRICAN ESTUARIES 2420 4.5.4.4.4.3.4.2. ECONOMICCONSERVATIONTHE DEVELOPMENT TRADE-OFFS PLANNING OF CONSERVATION IN ESTUARY SPECIFICALLYIN THE EASTERN CONSERVATION PLANNING FOR CAPE ESTUARIES APPROACHES AND DEVELOPMENT 272524 5.2.5.1. WATER RESOURCE PLANNING ECONOMICINTRODUCTION TRADE-OFFS INHERENT IN WATER ALLOCATION 303130 PROCESS 5.5.5.4.5.3. 36PROPOSEDDEFININGHow CATCI-HviENT OPTIMUM PROTOCOL MANAGEMENT FRESHWATER FOR INCORPORATING WILL INFLOW INFLUENCE AQUATIC TRADE-OFFS ECOSYSTEM VALUES INTO THE CLASSIFICATION 34 6.3.6.2.6.1. WATER RESOURCE PLANNING SPATIALTHEINTRODUCTION INTEGRATED PLANNING DEVELOPMENT REQUIREMENTS PLANNING PROCESS 37443837 6.5.6.4. 55INTEGRATING ESTUARY VALUES INTOCONCLUSIONPROVISION PLANNING FOR AND INCORPORATING MANAGEMENT THE ENVIRONMENT PROCESSES IN IDP AND THE CURRENT REALITY 5446 7.4.7.3.7.2.7.1. DEFININGTHEINTRODUCTION RELATIONSHIPOVERARCHING A HIERARCHY BETWEENGOALS OF OFCONSTRAINTS DIFFERENT PLANNING PLANNINGAND MANAGEMENT AND MANAGEMENT PROCESSES 575655 PLANNING 7.7.7.6.7.5. 60INCORPORATINGTHEEVALUATION IMPORTANCE OF TRADE-OFFSESTUARY OF ESTUARY VALUES AND VALUES THEINTO ROLE IN INTEGRATED PLANNING OF ENVIRONMENTAL CONSERVATION VALUATION AND DEVELOPMENT 5958 ENTERPRISE DEVELOPMENT 7.9.7.8. ENHANCING THE VALUE OF ESTUARIESPROTOCOLSHow THROUGH VALUATION FOR BIODIVERSITY-BASEDESTIMATING CAN ENHANCE ESTUARY THE MANAGEMENT VALUES FOR PLANNINGOF ESTUARIES AND MANAGEMENT 646261 8.4.8.3.8.2.8.1. DETERMINANTSCONCEPTUALCOMMUNITY-BASEDINTRODUCTION AND OF ANALYTICAL ENTERPRISE NATURAL SUSTAINABILITYRESOURCEFRAMEWORK ENTERPRISES (CBNRES) 72706564 8.7.8.6.8.5. DISCUSSIONLIVELIHOODSUSTAINABJLITY AND SUPPORT CONCLUSION 93918985 COASTAL MUNICIPALITIES REFERENCES ANNEXURE BA - SU1MARYIDP DEVELOPMENT OF CAPACITY PHASES ASSESSMENT FOR SOME EASTERN CAPE 106 102 1.1. I. INTRODUCTION Background Jane Turpie concentratingestuarydevelopProgramme managementa deeper funded in the understanding Easternby processes the Water Cape, ofand Research itthe was tools issues recognised to Commission. enhancethat confront that estuary many TheestuaryThis managementfirstof studythe managers phase issues forms of involved decision-making.theandpart programme toof developthe are second relevant additionalaimed phase to toor of the Eastern Cape Estuaries Management Research While managementpromoteneed to be the seen importanceof estuaries. in the context of considering of all South estuaries African inestuaries. development ThereThe second planningare some phase and 278 of willfunctional the support programme estuaries effective will in South Africa (Whitfield 2000, Turpie 2004a), of which biodiversityestuariessubsistenceofabout these half estuaries areprovide baseuse. found Asthat arenursery ina providesresult,importantthe Eastern areas a significantthese centres andCape, services refugia of accountingproportion recreation, isfor fragile, species offor estuariesand about however, whichmany 10% are areare andof heavily thealso utiliseddependent national important utilised. in otherestuanne on for maintenance habitats. commercial area. Many and or In addition, these The andchallengingpressuresareasprotection the that variability inof influencegiven some the complexityinthe areas. their diverseestuanne sensitivity The ofnature management interactions functioning to of such these threats. andthat systems,and protectionsupport health, the it. andtypesof the which of Eastern activities are Cape's also which subject estuaries threaten to tremendous istheir particularly integrity This includes the protection of catchment factisforthey no coastal that areexception, mostalso development becominggrowth but is in in the amongandthe country fortunatefor thethe world'shasfreshwater position historically most that supplies threatened ourbeen estuaries that inland habitats,they (Turpie Estuarieshave depend subjectbeen 2004a). on are spared for to acknowledged Asfunctioning.the ato increasing result, some our extentSouth to demandsestuaries be byAfrica one the of the most productive and valuable habitats on earth, yet canhavetothisare the incountryinclude notreasonablycoast, woken thehaveand conservation up exponential goodbecome too conditionlate. a seriousWe populationof biodiversity(Whiffieldhave consideration the growth rather2000). and has accommodateunique (Turpie begun opportunity to2004a). impact South Development toseriously Africa'sengage on developmentin waterpressuresstrategic supplies. planning haveneeds. But shifted This thatwe lt is only in recent years that the threats to estuaries in considerationsimportancereport investigates of into estuary why and management. how such strategic planning can Severalcome about, types andof planning concentrates affect the on futurethe of estuaries, determining the way in which they will be integrating development and conservation planning and incorporating economic municipalwhereglancemanaged,Indeed, the there mostwhileIDPand appears ultimately process appropriateco-ordination to (seebe the apoints type laterplethoraand andalignmentofchapter), intervention ofamount planning inwhere ofplanning shouldgoods initiatives, some beandhas aspects in improvedserviceswhich order ofmakesto that co-ordinationmainstreamvastly theyit veryin deliversome difficult estuaries are areas, to legislated,society.to understandinsuch planning. Atas co- firstin the ordinationinterdependent:Different among types otherof planning areas ofcan overlap be simplified are not yet into very the well following defined.Planning categories, defines all of the which conservation are completely and development objectives and goals of defined areas. I delineationConservation of protected planning: area the networksidentification and theirof important buffer areas, areas for biodiversity and the spatial groundwater)WaterDevelopment resource in termsplanning: planning: of their the the futureclassification identification health status of of water development and resources allocation goals (rivers, of water and wetlands, directions estuaries for a defined and effectthough to both these of plansthese atare the also estuary related level. to water resource planning Land(Figure use 1.1). planning Finally, is managementa primarily aperiod givesspatial and expression in a defined of areaconservation and development planning, Developmentintegralincreasing part inclusion of Frameworks the development in new (SDFs)legislation planning which such are process. as allied NEMA to andtheir the Integrated Land Useuse Development Managementplanning in Plans South Act, (IDPs).and Africa is now These is anbecoming more strategic and forward thinking with its All municipalities are required to draw up Spatial envisagedofmunicipalitiesedges,SDFs the willConstitution special provide that will land-use development beindicative and obliged NEMA. planning plans to areasconsiderThus willthat insteadand ultimatelyshow sustainability conservation the of followingdesiredencompass issues patterns worthythe all andsomewhat areas ofareas.safeguarding land of theuse,ad hoccountry. directions the process environment Moreover, of of growth, the past, planningin urbanterms it is In drawing up these plans, account.becomeeconomicscales,at the municipal asa development,legal they requirementwill level be will obliged sustainable be for integrated localto align developmentlevel thesewith planning spatial plans and to withand take bioregional developmentnational regional planning1.and conservation provincialplanning planningconducted strategies initiatives aton broader socio- into In addition, it may soon Water resource planning Conservation planning A NT Land plans / Management plans Figure 1.1. Links between different types of planning that affect estuaries Development planning takewater the demands economic in relation costs to to supplies aquatic acrossecosystems, the country. including DecisionsAt estuaries,a broader about spatialwater allocation level, development will ultimately planning will have to take into account the effect on overall into account. Local level whole or several nested ecosystems and which can be characterised by'According its Iandforms, to the vegetation Biodiversity cover, Bili, human a bioregion is a specified "geographic area of any scale that contains culture and history". 2 consideration.development initiatives Apart from catchment-level considerations, land-use planning also has important implications for will thus eventually need to take these broader scale constraints into paramountestuarieshydrologicaldeveloped.land use withinalso importanceThere patterns affects and is huge adjacent andthe is the demandnumbersrequire overall to estuaries. thefor andlevel thehardening types ofconstruction access of usersof tothe estuaries.of thatestuary marinas impact edge. For and directly example, housingThe levelon increaseddevelopmentsestuanne of development roadbiodiversity. which access around alter toOf Planning affects the extent to which estuaries can be significantdevelopmentsestuaries opportunities along that the will Pondoland for greatly economic alter coast thesegrowth, will estuaries. facilitatesimply because the development the demandIn many of for miningcases these it operationstypes will be of shown facilities and thattourism and such developments enhance an estuary's value and provide themandopportunitiesprovideslatter attributes comparable is far a moresuite isthat so with arehigh.difficultof methods compromiseddevelopment However, to demonstrate, which there alternatives.by allows these is andalso these types isa inUltimately,significant values someof developments. casesto demanditbe should expresseddownright forThebe thepossible troubleintangible. in ecosystem a common isto thatestablish Resource goods,the currency, value a services economicsbalance of making the 1.2. overallin terms value of ofthe these estuaries systems. that should be developed to different degrees, in such a way that maximizes the theSpecificestuaries, value of aims estuaries land-use of the andstudy planning, estuary are: integrated based enterprise development development planningThe into research (IDP)strategic and objective adaptive other related Aimsof management this studyprocesses. of the was of tostudy inform the development of protocols for incorporating To examineelucidate howthewhat potential the is knownvalues economic aboutof estuaries the role economic ofneed estuaries to valuebe takenin ofintegrated estuaries into account development and inmeasurement water planningallocation thereof Toplanning examine howhow estuaryeconomic valuation values can of estuaries enhance needthe strategic to be taken adaptive into managementaccount in local-scale of estuaries land-use 1.3. To explore best practice in enhancing the value of estuaries through enterprise development embarkingestuariesEstuaries of Managementon the strategic Eastern planning. Cape.Programme This chapter with regard highlights to the the current threatsThe healthto report these and beginsestuaries conservation by and recapping Structurethe status necessity some of the of of thethe findings report of the first phase of the Eastern Cape 3 examples from South African case studies. The next chapter summarises our understanding of the economic value of estuaries, giving processesand discuss and the we degree examine to thewhich current environment state of affairs and economyin this regard.The areFollowing following supposed this three towe chaptersbe explore integrated describe the relationshipsin these three main between types of planningthe different processes planning that and affect management estuaries discussruralprocesses, communitiesthe ways and in the which in waythe estuarydevelopment in which valuation environmental of estuarine should be andbiodiversity-based carried estuary out valuesinFinally, order enterprises. should to we inform explore play these a arole. potentialprocesses. means of enhancing the value of estuaries through involving local Here we also

4 2. THE STATUS AND CONSERVATIONESTUARIES OF EASTERN CAPE Jane Turpie catchmenttheseimportant2.1. services recreational, degradation, is under subsistence threat and development,due to use numerous and populationcommercial factors includinggrowth activities. andSouth increasing poverty African nationalin estuariesthe coastal demands provideIntroduction zone. for numerous Thesewater, goods and services to society, and form the basis of The biodiversity base that provides directlybiodiversityLesserdynamics,ultimate problemsaffectsthreats overexploitation,protection thelead are coastal to is changesproximate relatively zone. sedimentation, in causes poor.While water Estuaries provisionof quality biodiversity recreational receiveand is made alien loss littledisturbance, suchininvasion. or the no as new attention habitat andWater alteration,a in loss Actpolicy offor systemand anchanges environmentallegislation variability. in mouth that However, the current state of estuariestherehealthestuarinereserve, are status the areasbiodiversity,are implementation increasingof whereestuaries with considerable exponentially isalmost fairhas overall, beenno degradationestuaries andslow. and may suggests protected soon has takenhave that from aplace,many seriousconsumptive estuariesand impact, it is concludeduse. are given Despitequite the thatrobust. current this, the the However, threatsstatus current ofto Current protected area systems offer little protection for estuarineCapeprotection. Estuary biodiversity Management conservation. Programme (Turpie 2004a), includingThis chapter the guidelines recaps some for a of strategy the findings for and ideas developed during the first phase of the Eastern varying2.2. bìodiversity, which changes depending on biogeographicalEstuaries zonation, are estuary among type the andmostEstuarine size. dynamic Thus ofbiodiversity ecosystems, supporting a rather uniquely adapted but differencesvariationstheanimals.each estuary estuary Further within from in is the fairly itsandifferences naturemarine estuary unique ofto (which bioticarefreshwaterin terms to communitiesalsobe offound extremes. changeits physiochemical within overfrom 'The estuaries, time) estuaryoverall all characteristics variationasplay to oneestuary. a role moves between in This asdetermining through a estuaries presentshabitat different forthe asa plants significantsubstantialwell zones as and the of ecosystemcontainedchallenge in forfunctioning, our conservation estuaries, is very especially planning imperfect. forand smaller for management. taxa, and our understandingNevertheless, of communityestuanne researchdynamics scientists and do have a feel for the state of health of estuaries, Moreover, our knowledge of the species assumptionofbiodiversitygained theconservation physical from isthat observing imperfect, and theirintervention, chemical conservation changes protection health the over process requirements ofin estuarineestuaries.time willin perturbed have biodiversity areWhere greater to be estuariessystems. led willthan byprobably those havetheThus more ofto asconcentrate smallerbe long conspicuous prioritised as taxa. our on forunderstanding the taxa,different maintenance with types the of 5 follows:proximate23. Problems threats to theaffecting biodiversity estuaries and functioning of estuariesVarious of the authors Eastern have Cape evaluated are described the threats as to South African estuaries. Some of the main 2.3.1. Habitat alteration or loss within an estuary can be due to reclamation for development, mining,Habitat alteration I loss areestuaries,irreversibility.orconstruction harbour under imminentparticularly construction. of structures threat, where such and there theas bridges problemare resort and is developments.considered jetties, or the to beremodelling Several widespread estuaries of andpart serious.of(e.g. an Swartkops,estuary for marinasNxaxo) There have been substantial losses of habitat or alterations of habitat in Eastern Cape Habitat alteration or loss is a particularly serious threat because of its abundance.may change Thisthe basic is mainly type dueof2.3.2. the to estuary,reduction affecting in freshwater salinity,A inflow, change habitat with inand mouthsmall species estuariesdynamics composition usuallybeing most resultsand in a greater frequency and duration of closure, andChange in mouth dynamics vulnerable.or harbour At construction, least 14% of particularly Eastern23.3. Cape blind estuary estuaries mouths with urbanare affected settlements. by artificial breaching or by bridge Overexploitation threatenedmaysystems,linefish be stocks more byas overexploitation.bait (Britzsensitive populations et aL to 2001, overexploitation are quiteLamberth resilient. & Turpieof Small fish 2002). andtemporary bait, EstuarineAll but thesystems arelarge spawning not (most systems overexploited Eastern fish in are the Cape notEastern at particularly estuaries)present. Cape are heavily overexploited, especially in terms of their Bait is heavily exploited but not considered overexploited in many At systems,mouthcompletelyOverexploitationleast 21%closed), such removedof asestuaries the theof Mzimvubu plantsfrom Mngazaria, inthree isthe also(happened estuariesEastern there evident is aCapeinafter threatin the some flooding), areformer of overexploitationconsideredEastern Transkei and MnyameiCape -to the beestuaries. due Bulungula under(due to ongoing to high overharvesting). (this consumptiveharvesting happened pressure. after use the Mangroves have been In other pressure, and 8% are under medium2.3.4. pressure (Turpie 2004a). Sedimentation (including siJtation) alsoTheerosion problemoccurs in the in is somecatchment widespread of the area,larger in the smotheringsystems Eastern such Cape. habitats as SmallKowie, and estuaries Bushmans degradingThis are can and livinghighly be Kariega. due conditions susceptible, to intrusion for but manyof themarine species.problem sediments due to lack of flushing, or silt deposits due to soil 6 2.3.5. Loss of system variability diversity.systems.manipulation. The problemOne of the is widespread features that and maintains potentially the serious. diversity of Thisbiota mainly in estuaries applies is tothe systems variability with of altered the hydrologyReduced through flooding upstream and dampened impoundments seasonal, or mouthtidal or other fluctuation will result in a loss of disturbanceof human activity. has significant This is intensified effects2.3.6. on when fish and the bird systems abundance, contain and developmentsEstuaries where prolongedwith reasonablesuch asduring marinas. access, certain Human generallytimes the larger systems, are subject to significant amountsRecreational disturbance vicinityprovinceareCapeof year, under estuaries of may than resortmedium eliminate in are areasthe pressure considered former on species the Transkei (Turpie Transkei toor bereduce 2004a). region,subject Wild abundance Coast. althoughRecreationalto high levels disturbance(e.g. disturbance of Turpie recreational levels& Love is higherincrease disturbance 2000). in toSomethe medium westernand 23% a furtherlevels ofhalf Eastern of in11% the the communityaffecting organisms composition, with definedbiomass,2.3.7. salinity productivity tolerance etc. ranges (most estuarineChanges organisms), in salinity mayleading occur changes due to in changes in freshwater inflow, or due to mouth closure,Change in Salinity The problem is thought to be widespread but not intense. 2.3.8. Increased turbidity consideredeffecthampersdecreases may visual the tobe be depthcarried foragers, a major at intowhich problemresulting the plants marine inin can Easternloss zone grow of visual Cape duringand reduces predatorsestuaries, periods waterTurbidity, andofbut high column canchange flow.be caused seen(primary) of community inby estuaries suspended productivity. structure. with particles, eroded The reduces light penetration into the water column. Increased turbidity is not lt also This catchments. 2.3.9. Changed nutrient status smotherproductivitysewage, otherfertilisers, in theplant estuary, andspecies. concentration primarily The increase by algae, of nutrients in which production responddue to is reduction thus rapidlyNutrient usually to in elevated statusflow. accompanied is nutrient usually by statuschanged decrease and by may increasein in nutrients such as nitrogen and phosphorus from The result is increased healthamelioratedmajortoxicspecies dinoflagellate ratherthreat, richness bythan as flushing. and organismsbiodiversity. blooms diversity, E. coilwhich tend thepollution deplete toproliferation be tolerantis dissolveda bigger of of alien aproblem oxygen lot plants, of change, andin andEastern result eutrophication. and inCape changedthe estuaries,die-off The water of latterfish. affecting quality Thismay isinvolvehumancan not be a 7 2.3.10. Pollution whereextinctions,effectsmetals, there oforganic boating genetic is intensive phosphates, within modification, estuaries).agriculture detergents, bio-accumulation such etc, as pineappleand from and oilreproductive farming, spills Chemical(large golf stress. courses scale and This manne andorganic problem urban spills pollutants isdevelopment.or most cumulative severecome from industrial wastes and stormwater containing heavy This type of pollution can kill organisms and may result in local MzimvubucommunitiesTranskeiintenseThere is except alsoregion system. doinga inproblemis athe theirfew excessive localities, washingof sewage amounts inbut theleakage it iscatchment offairly detergents from widespread. septic area. entering Fortanks. example, the systems this is due a particular to the activities concern of in rural the One of the main concernsThe in pollution the former threat is not particularly 2.4. The ultimate causes of these problemsThe proximate threats listed above come about for a number of reasons. Overexploitation and aredevelopmentdirectandrecreational tracedlack result of backconservation disturbanceof around planning to changes estuaries, decisions.are planning, linked (mainly again toPollutionand easy relatedreductions) can access, beproblems to linked planning. lackin freshwaterboth are of enforcement, Changesato result poverty inflows, of in increasingand water inappropriate wealth.in qualityturn residential Habitatcaused and regulation mouth loss by and increasing is dynamicsindustrialsystems, largely a constantinflow.practices,thedemands invasion Loss environment forafforestation of waterof system alien in thevegetation. forvariabilityand catchment users alien (e.g. invasiongenerally Siltation areas stable in and results is catchmentwater caused beyond fromlevels). by(fuelledareas, purposeful loss and ofby ripanan lowis management exacerbated water vegetation, prices), toby maintainand reduced poor exacerbated agricultural afreshwater benign by or In general, the way in which decisions are theestuaries,made most reflects appropriate such a generalas hydrological measures lack of recognition alteration to stem these andof the overexploitation, causes. value of Most, estuary if Whilethisnot biodiversity all,is notit proximate is always often to society fairly enoughcauses asstraightforward a tocan whole. set be in traced place to pinpoint the proximate causes of biodiversity loss in implemented.thecertainturnback mostmay to subsidieseconomically-driven be appropriate driven (Figure by higher points 2.1). processes level of intervention,causes or causes,such as and suchagricultural if optimalas demand and and poverty-relief for effective agricultural interventionspolicies use of which water, areadvocate which to bein lt is important to understand these dynamics in detail in order to identify

8 Ultimate causes of biodiversity loss Martcetfaiures andpolicy distortions Consumer attitudesan preferences Proximatebiodiversity causes loss of Pollution Climate change Overexploitalion Invasion by alien app Habitat alteration and loss Hydrological alteration Red chan of populaticos & qeneUcjdiversi Biodiversity loss 2.5. Current state of estuarine biodiversity protection Figure 2.1 Proximate and ultimate causes of biodiversity loss. The causal links between these are not illustrated. 2.5.1. Various estuanne resources are protected to varying degrees around the country, by a variety ofLegislation constitution,resourcesaffectingTurpielaws or 2004a). (a)circumstanceswithin which water estuaries states quality that(Smith (Van and Niekerk quantity,& Cullinan & Taljaard(b) 2000, land Breen2002).use and &All McKenzie infrastructurelegislation 2001, is underlain development, van Niekerk by the & Southand Taljaard (c) African living 2002, Policy and legislation which affects estuaries directly can be roughly divided into that resourcesconservation,legislativeenvironment whileand protected otherand promoting (iii) measures for justifiablethe thatbenefit (i) economic prevent of present pollution and and social future and development.' ecological generations,'Everyone degradation, through has the (ii)reasonable promoteright (a) to an environment that is not harmful and (b) to have the secure ecologically sustainable development and use of natural Waterand AffairsTourism, and Forestry, responsible for water resources, and theEstuary Department management of Environmental falls mainly Affairsunder two national government departments: the Department ofresponsible for everything else, e.g. land use, living resources. Environmental management is devolved to provincial level through whichever provincial department is responsible for 9 (Breenmunicipalenvironmental & councilsMckenzie matters. pass 2001). Provincialmunicipal by-laws,laws cannot which conflict in turn, with cannot national conflict laws. with At provinciala local (municipality) and national level, laws The Coastal Management Subcommittee under the Committee for ActEnvironmental 361998) of 1998, ensures under Coordination co-ordination DWAF .(established among the various under statethe National institutions.Water Environmental quality and Management quantity are chiefly Act 107 controlled of from the terrestrial side under the National Water The marine aspects are affected by other acts such as Combating wateroncateredprotectPollution the"reserve" basis thefor of will natural theof which beecological, Sea determined meetsfunctioning by Oil socialbasic Act by 6ofhuman andthe of a 1981, waterdesignatedeconomic needs underresource. and considerations. "class" DEAT. ensures of The that the Nationalestuary quantity (A Waterand to D),quality Act which makes of wateris to provisionbe required determined forto a The extent to which an estuary's functioning is subsistenceindividualbiodiversity.optimum utilisationspecies. fishers and and marine ecologically protected sustainable areas (Breen development & McKenzieLiving of 2001).marine resources living areresources subject andto the protect Marine Living Resources Act 18 of 1998, Thewhich act aims requires to achieve a licence for any fishing, and sets limits (size, quantity orThe season) act also for allows establishment of fisheries management areas, zones for toConseivationthe thea latter number high do tide notandof mark). strategieshave Sustainable Estuariesjurisdiction to Useprotect can overof also South wetlands the be useAfrica'sprotected of in estuarine general,Biological within regular livingsuch DiversityMarine resources. asprotected facilitatingprotected (1998) areas Thecommits areas the White (see developmentwill the below), Paperin government future thoughon be the of controlled under a separate Marine Protected Areas Act (up diversity.guidelinestoProtectedappropriate recognise Wetlands,for legislation wetlands managing preventing into them.planning secure The inappropriatetheir and Biodiversily conservation,decision-making, activities Bill (July promoting and determining2001) development providesthe establishment the forimpact around the conservationof ofwetlands,fishers a National and findingof developing Systembiological ways oflt requires identification of important landscapes, ecosystems, ecological process and species forbeprotected biodiversity protected areas, conservation,within recognising World Heritage and South promotes Sites Africa's under monitoring obligations the World of these.to Heritage internationalThe Convention Environment conventions. Act 49 Conseivation ofEstuaries 1999. may Act also- Terrestrial and Marine protected areas (1994) categorises lt also provides for the proclamation of wildlifeanyestuaries,managementprotected category. management fish,areas objectivesThose spawning into areas, such7 categoriesand areasregardless as criteria Kosi and could (basedseascapesfor of whoselecting be onclassifiedowns IUCNshould and those managingand asgenerally resources. Category one additional eachbe Vtreated -category. Protected category). as Category The land/seascapes, policy IV suggests- Habitat while thatand In reality, estuaries could fall into lt prescribes the agenttheothers basis incould ensuring of the be managementclassified the effective as Categoryobjectives custodianship VI of -the Sustainable ofestuary the environment. (Smith Use Areas.2000).The The Each National mining estuary industryEnvironmental should now be has classified Management to comply on Act 107 of 1998 (NEMA) requires DEAT to be the lead withenvironmentallevel,Nationaland the Mining bynational Coastallocal Policy authorityenvironmentallegislation Management for SA plans, (Breen(1998). management localAct & (still McKenzieby-laws, a Bill). policy provincial 2001). under planning the new legislationWhite Paper and concerning national planning a Minerals and Land use and infrastructure planning is primarily affected by the Development around an estuary is controlled at a local Planning is affected by the Local Government makesregulationaMunicipal single1989 provision areplan Systems on still forSensitive in a for force municipality.Act the 32 Coastaluntil declaration of 2000there Areas which are of replaced(SCA) limited promotes from development with integrated the new previous regulations developmentareas. Environmental under planning NEMA. Conseivation and the adoption Act 73 of In addition, Environmental Impact Assessment (EIA) regulations and The White Paper on Integrated The latter act also Pollution and Waste Management for SA (2000) will culminate in new pollution and waste legislation. 10 coastalreports.management.management, management, Thethe co-ordination policy emphasising also promotes and the integration value monitoring of ofthe coastal andcoast, the management,the productionThe facilitation White Paperof and regularof sustainable afor co-operative Sustainable statelt oflays coastalthe astyleCoastal coastframework of Development for national, in provincialSouth Africa and (2000) local coastal promotes management. integrated At the provincial level, theprimarywhereWorkingeach high province appropriate. law tideGroup is mark, the identifiesis Sea-shore toincluding be established. a departmentestuaries, Act 21 of and1935, that gives whichwill the be makes publicthe coastal thethe governmentright lead to useagent, thesethe and owner areas. a provincial of everything Coastal below The white paper has yet to be translated into final legislation, and until then, the At the municipal level, local coastal forums are to be established particular.areheavily affected influenced by a bylarge activities number in a of much policies broader and catchmentlaws, none and of adjacentwhichIn summary, are marine designed the area, fact that formeans estuariesestuaries that they containin freshwater,Indeed, terrestrial estuaries and marine have tendedcomponents, to be neglectedand are in past legislation, though the situation has improved with newer policies and 2.5.2.legislation. Shortcomings in implementing the legislation frommanybiodiversityAfrican consumptive of estuaries, these and are functioning. use.only However,partly protected because (Turpie the MLRA 2004b), legislation and very supersedesAn few important systems any challenge are legislation completely that that still protected might lies aheadbe is the development of a conservation plan for South in which a system of protected areas will secure the persistence of estuarine At present some 41 estuaries enjoy some level of formal protection but treatedbusinessestuaryunderin conflict a as isprovincial aswith such.the usual, it,one the ordinancethatin status that holds estuaries of isthese (the now MLRA estuaries thatnull andwere does isvoid. protected notnot Anotherclear refer cut.under to isany One that the specific interpretationthe provincial law estuary). which ordinances is is that more former specificare protectionstill tobeing the In reality, it is still estuaries.Cape,marineof MCM's but fishery Mostonlylaw problems.enforcement aboutof the sixestuary have staff compliance MCM are conservation employed work is incarried cards, the Eastern outand by they a TheCape, few only level dedicated anddevote of they enforcement about individuals. tend 20% to concentrate isof weak,their time having on to decreased since the introduction of the MLRA. Only 13 Municipal conservation officers tend to do the estuary patrols in the Eastern countsgenerallyadevelopment. motivation which not for wellthreatenHowever, more understood intense tourism. few IDP's developmentby Planning planners, focus on processes riverand(Boyd perceptionssystems et vary, aL 2000). or and estuaries, of are problemsThe Outsidelargely functioning and aredriven theyprotected often areand by limited often wantsvalue used toandof highestuaries simplyneeds E. coli asof is areas, municipalities now use Integrated Development Plans to guide isrealitydevelopmentsaccount,local effectively communities. which unless toothlessis suchdominant conservation as in marinasthe in mostface areas ofandlocal-level inappropriate mininghave aplanning operationsmajor planning. role decisions. attractin the local Environmentalmore economy. money into impact The the bottom assessmentlocal economy, line is (EIA)that a Outside of protected areas, planning does not generally take conservation into 11 Estuary2.6. Guidelines Management Programme. for a conservation strategyAThe strategy following should is a summaryhave goals of thatthe guidelinesare compatible developed with a during broader the vision first phase and overriding of the Eastern policy, Cape and estuanneperspectiveprotectionshould ultimately biodiversity is than essential theconverge are communities to proposed accomplish with the as that government'sfollows: this interact goal, directly especially goal withof maximising ifestuaries. society is societal consideredMaintain/restore welfare. from a broader the ecological integrity of estuaries, by ensuring that the ecological interactions The goals for protection of Biodiversity includesrepresentativeMaintain/restoremaintained.among estuaries (for all setestuaries): theand of estuarieshealth those betweenof isestuaries maintained estuaries, in/to in aas goodtheir close catchments to to excellent their pristine and condition, otherstate asecosystems assuring possible. that Thisare a communitiesmaintenanceprocesses inwithin terms of ofof the theestuaries,the of natural naturalsize,natural structure taxonomic characteristics magnitude, and diversity functioning, variability and of variability all through estuaries,and frequency sustainableof estuanne without of utilisation,loss naturalpopulations of indigenous physical and and drawing from international experience, five core components of a Consideringstrategy were these identified goals as in follows. the light of current and anticipatedspecies.taxa from future any estuary threats other to biodiversity, than by natural and processes, and without the introduction of alien strategyencouraged should and change commissioned. with improved2.6.1. A fundamental understanding, element as necessary. is the Strategyfeedback and to adaptive management management: action needs the to be informed by quality research, which needs to beResearch and knowledge management 2.6.2. protectionEstuarinelt is proposed Protectedfrom that consumptive three Areas types (EPAS), use.of estuary EPAs in whichmanagement should part be orselected shouldall of the bewith estuaryconsidered: both biodiversity is a sanctuary, representation providingRegulation and enforcement foraugmentedandEstuarine recreation. socio-economic byManagement Conservation estuary-specific considerations Areas Areas regulation. (EMA), (ECA5)in mind. to which These- co-managed general are particularly regulation estuaries suited applies in whichto estuaries general used regulation primarily is These include the following: 2.6.3. This is essential to alleviate certain threats, especially where regulatory mechanisms are weak.Conditions and incentives that support conservation 12 Incentives for improving quality and quantity of freshwater inputs. These include catchment developmentSensitivepermits.incentiveslevel water planning: for demand plans improving asThreats management well quality as to municipal estuaries and (pricing quantity plans. need incentives), to of be catchment taken and into supplyrunoff,consideration managemente.g. tradable in regional-level pollutionthrough carecommunityallocatedshouldProperty and be only rights, toreduced. management very if certain community few Commercial users conditions is not participationper advised, estuary. exploitationare met. and and co-management rightsco-management (e.g. bait mustcollecting Open be appliedaccess for sale) withto resourcesshould extreme be lt isCommunity argued that participation the conditions should for successful be maximised, co- routeconservationfacePovertymanagement ofto poverty,povertyalleviation areof biodiversity.alleviation generallyand and poverty alternative unfavourablein However, highly alleviation livelihoods. populated estuarine in theprogrammes Easternareas.No resources conservation In Cape. this are themselves situation, thus strategy an creationessential cannot can succeed ofbe part alternative seen of in asthe the a support.InstitutionalcriticalCommunication,livelihoods to the would successsupport. educationbe a of betterNo a conservationconservation and strategy. awareness strategy. strategy raising. will General succeed awareness without and strong understanding institutional is elsewhere within the Eastern Cape2.6.4. Estuaries Management Programme.This is a core element of the strategy. Guidelines for monitoring have been developed in detailMonitoring and adaptive management unacceptable, and in instances 2.6.5.where the strategy may fail. This is an optional element of the strategy, for use where the current extent of degradation isRehabilitation 2.7. Conservation planning Theis required role to of inform planning the second component of the strategy, in which all Theplanningamongstprovideestuaries various conditionsneedscommunities are types assigned to ofsupport thatplanning that to support the onesurround andconservation of three conservationtheir estuaries effecttypes and onof and developmentmanagement(componentestuaries the provision is discussed plans 3),category. of in alternative throughparticular in Development more allocation livelihoods. thedetail alleviation inof planning later water Water chapters. ofresources. needsresourcepoverty to 13 3. THE ECONOMIC VALUE OF SOUTH AFRICAN ESTUARIES Jane Turpie salinitysociety.3.1. gradients and fluctuations. They deriveEstuaries their richness are well and known productivity as nch and from productive nutrient Introductionand systems Theirsediment unique that produce biodiversity a wide assemblages range of benefits have toarisen from the need for biota to cope with their enclosedprovide.inputs received coastal bodyfrom riverof water and whichsea water, is eitherSouth combined permanently Africa with has the about or relatively periodically 258 systemssheltered open that aquaticto the fit Day'ssea habitat and (1980) thatwithin they definition of an estuary as "a partially size.fairlyfromwhich(38 landsmall. 000there drainage"ha). Theyis a Nine measurable cover (Whitheldestuaries a total variation are2000).of about between Despiteof 70 salinity 000 1000 their ha, due and withlarge to 4000 the St number, Luciamixture ha, and estuary South of 80% sea African accountingofwater estuaries with estuaries freshwaterfor are over under are half generally derived100 of thisha in alteration,occurredmouth conditioninland. overexploitation, due to changes human in disturbance,freshwaterEstuaries inputs change in are South increasinglyin water Africa quality have becoming and benefited changes a problem from in forhabitatthe many fact and ofthat our most development has historically However, the situation has changed in recent decades, and threats such as habitat disturbancedevelopment,estuaries (Turpie of catchmentnational 2004). increases lands, and in increased the demandsPart poverty of the for reason among use andthat coastal pollutionestuaries communities ofare water, threatened (Turpie increased 2004).is that use the andbenefits of damaging activities are usually Many of these problems can be traced to the recent escalation in coastal mayunlesstheseperceived be perceptions, they true byto takepart bemany greaterofsocio-economic and theto be time,in than costly,some there the cases,both realities benefitsis likely in realities, terms tointoof beconservation account.of amanagement managementstrong economic and and andsustainable conservationcase the opportunity for conservation use. planning Indeed, costs and willinvolved.conservation besustainable toothless Given is lt is argued here that while general perceptions use in many instances, if the valueshowhighlight of estuaries that theEstuary estuary degree is taken valuationdegradation to into which account. serves estuaries cames to: a contribute cost, and to human wellbeing and economic output estuaries. ltbenefitsbring also a helps morein a currencyto balanced devise compatible more perspective efficient with to conventionalincentive planning systems and decision decision-making, and tools. financing tools by expressing for the management conservation of 1.1 Generation of householdEconomic income, value is a measure of societal Whatwelfare or is wellbeing, 'economic and is createdvalue'? through: Generation of employment, 14 DifferentGenerationContribution measures of to utility household or of satisfaction value livelihoods are relevant (e.g. tocash different income, decision-makers. food, shelter), and Individuals and firms make theformerunderstandbasisdecisions overall of constitute overall oninterest value the welfare basisthe offrom society.market of bothgains their forcesfrom (contributionown an offinancial individual/firmchange, to and/or nationaland the utilityperspective latterincome gains. are and requiredGovernmentsand employment). a national to make make perspective, decisions decisions that since onare thethe in lt is important to arelevantmeasure change to ofin estimate nationalestuary quality incomean estuary's or - thesize.A Grosscommoncontribution Domestic indicator to GDP, Product of and/or societal (GDP), the wellbeing wayby the in totalwhich is population.income GDP would per Thus capita. change it is highly given This is calculated by dividing a nationalspentanglersThis expenditure on contributes economy intermediate contributes (i.e.to the goodsends turnover upto Anand theas estuaryof servicesincome).turnover businesses contributes (e.g.in an such on industry. vegetables), asto GDPtackle-shops through the andtherest hotels.expenditure is direct Part value of generated the added turnover toby the estuary-dependentis activities. The intermediate expenditure in turn contributes to the For example, expenditure by recreational isbetweenvalueTheseturnover estimating added contributions ofthese other (contributionthe two businessesdirect reflects to valueor indirect tothe (e.g. GDP)added multiplier greengrocers)contribution is together the effects sum make of of in anthethe other upestuary direct the sectors, indirectvalueand to different indirect someadded. value oftypesvalue Note addedwhich ofthatadded. becomesbyturnover, the estuaries. Themost value andrelationship difficult Thehow added. total partthis importantareturnover not reflected would contribution change in measures towith peoples' a changeof GDP.Not livelihoods allin For estuaryof example,the without values quality. the generatinggenerated consumption bydirect, estuaries of estuarytangible are resources income. traded in may markets, make however,an and non-market values Similarly, the Willingnessinnotaesthetic terms be directly ofbenefits topeoples' Pay.measurable of a Willingness view, in andnational the to scientific Pay,accounting rather and systems. than educational actual Values turnover, benefits such asassociated the this latter are often constitutingwith bestestuariesTypes expressed proven would of value generated by estuaries contributesthevalueI ecological-economicsi. and contribute to economic to human production. literature, welfare. stems The from concept the perception of ecosystem Estuaries,of ecosystems goods likeand otherservices,as natural ecosystems, populansed capital which offer in a range of goods, services and attributes that generate Goods are harvested resources, services are processes that contributeEconomicbiodiversity. to economicValue concept. production TheEnvironmental Totalor save Economic costs, and Value attributesresource of an ecosystemrelateeconomics to the comprises typicallystructure usesand Direct organisation a typologyUse, Indirect, of of values described in the Total consumptiveInOption the caseand Non-Use of (fishing South values.and African bait collecting)estuaries,Direct use and most,values non-consumptive if maynot all,be generatedof this (e.g. use boating, through is recreational, birdwatching)the consumptive and activities.includes or non-consumptive both use of resources. 15 other sectors of the economy, Indirector that contribute use values to are net values economic generated outputs by elsewhere outputs from in theestuaries economy that byform inputs into production by innurserysaving the future, onfunctions. costs. and Thesethe value outputs of knowingNon-use are derived that values their from include biodiversity ecosystem the value is functioning protected. of having Althoughsuch the optionas water far to less usepurification tangible the resources than and (e.g. genetic) of estuaries economicstheresources, above conceptsvalues, sometimes non-use of different expressed valuesThe types inrelationships are ofthe value reflectedform areof donations. depictedbetween in estuarine Figure 3.1. biodiversity and the ecological-economics and resource- in society's willingness to pay to conserve these Productivityi J fJ !J J !4Ecosystem function ing & resilience L1- Ei J LI kd and organisation Structure natural resourcese.g. Harvested L e.g. Flood attenuation, Water purification e.g. Beauty, rarity, diversity Direct consumptive use value 4, ___J Indirect value non-consumptive e.g. Recreation use value Direct ExistenceOption & value Local All society Regional to Global Figure 3.1. The relationships between biodiversity, the concept of 'ecosystem goods and services' and 'total economic value' typology of values (based on Turpie 2004c) 3.1).or 1.3.'revealed The more preference' intangible approachesthe type of value, and 'simulatedthe fewer the market' methods orEconomic 'stated available preference' valuationfor use. techniquesapproachesValuation can (Table be methods divided into 'market value' approaches, 'surrogate market' 16 Methods Table 3.1 Different tvnes of valuation methods and the tvoes of value they are tvaicallv used to measure use values Consumptive consumptiveuse values Non- use values Indirect & non-use values Option ReplacementProductionMarket value function costmethods X X X HedonicTravelSurrogate cost pricing marketmethod method / revealed preference methods X ConjointContingentSimulated valuation valuationmarket! stated preference methods X X X inputsproduction such functionas environmental approach quality is one andwhich labour, models and the then production isolates the of avalue good added orMarket service by valuethe as environmental aapproaches function of can be applied to measurement of direct or indirect use values. The costsofcomponent priced,productionoutputs also or needrequires in if when questionnon-existent, to be thequantitative estimated quality(e.g. surrogateEllis or insurveys,quantity& aFisher similar prices ofprices1987, theway. have environmental Barbier canOther to bebe market used1994).taken on component directlyThisvalue the canbasis approaches from be isof used existingchanged.related to include estimate markets.markets, The replacement measurement change Production shadow in avaluationcost water methods, storage of environmental estimates or purification of servicesdamage facility. suchcosts as avoided water purification,and of defensive such expenditure.as the replacement RevealedThe latter of a arepreference wetland applied with tomethods include travel cost methods and hedonic pricing methods. The Turnerforthetravelestimation estimationsite cost1990, value method of Russellof(e.g. demandthe Clawson amount¡s 2001). used for visitsthatThis& for Knetch an estimation methodto environmentala site1966, involves in ofrelationWillis recreational amenityconstructing& toGarrod the addsprice 1991).use a to ofpredictivevalue, property aThe visit, hedonicand using modelvalues involves travelpricing fromin an coststheexisting areamethod quantitative as(Pearce propertya is proxy used & for of1989)sales estimating data,and conjointin whichoption valuation the and environmental non-use methods values, attribute(Green although & is Rao one they 1971,of the can Stevensexplanatory be used et aI.to variable estimate2000),Stated-preference for provide mostprice typesofthe properties. only of value.meansmethods, such as contingent valuation methods (e.g. Mitchell & Carson methodhypotheticalcompensationpeoples'Both involve is willingness very questionnairesituation. prone (WIA) toto for Thebiases, pay its surveysdetailed (WIP)loss. but WIPif forof universallymethod the the and affected benefit WTAis usuallyaccepted arepopulation.of an estimatedunique environmentalstandards to eachby are asking followed,specific asset respondents or situationthese willingness problems or to study. reactto canaccept Theto be a Conjoint valuation methods (CVM) elicit wayitsacceptably invalue. which The differentminimised method components borrows(Arrow et statistical aI. of 1993). an amenity, techniques ConjointIn such certain methods developed as speciescases are in itmore the diversitymay field complex, be ofpossible or marketing. cleanliness, and to seek apply to contribute theascertain results to the of other studies undertaken in similar areas, such as the transfer of international estimates to local open space areas. This is called benefits transfer 17 to (OECDanother 1994,site. This Georgiou is usually et aI. not 1997, good Barbier enough et to aI. base 1997), important because decisions the measured upon. benefits are transferred resources.primary1.4. role However, was initially when for put lobbying in context, the importancean understanding of sustainableValuation of the value useforms ofand/or biodiversitythe basis conservation Valuationof allowsmost resource-economics ofdiagnosis natural as a primary research tool and of application resource (Figure economics 3.2). Its goals.allowsenvironmentalidentifyingof the causesthe thedevelopment problems,management.of environmental opportunitiesof incentive degradation measuresand constraints and and biodiversity financing that would loss.mechanisms guide planning, that resource help to achieveallocation these and Finally understanding of values, their context, and the goals of planning This understanding is critical to Valuatibiod ive Assessment of ecological, socio-economic, for bïodive,-sJty Lobbying COf5tflGJtlOo Diagnosis of root causes legal & institutional context Understandingoppotuntleo & onotrointo proero, of biodiversity loss Integrated cons & dey ¡ incentives'r Design planning I financingiDevelop Implementation mechanisms mechanisms ¡ Figure 3.2. Resource economics tools for environmental and natural resource management, showing the role lt is argued above that the accurate valuation of estuaries and understanding of their dynamics of valuation extrapolaterelyingmethodsdecision-making.could beon are aextensive resultsfundamental (1) highly from surveys specialized, one perquisite areawith largeto requiringthe for sample next, the verysomethingoptimisation sizes, technical and which (3) designof localised planningis probably & analysis, in andscope, particularly management (2) in labour-intensive,that true it is ofvery estuaries.policies difficult mostly and to The main constraints that are faced are that accurate valuation and social assessment makesmaking.economics them Resource studies both cost-effective economics of estuaries. practitioners and applicable. will needThe tochallenge devise effective is therefore ways ofto applying find the theirright tools trade-off which between accuracy and cost of resource Studies need to be focused on the right issues to enable decision- 18 1.5. The value of estuaries: an international perspective termsinputsliterature. of intoprotection Almost marine against 25production years hurricane ago, processes. Lynne damage, et Farber al. (1981) and (1987) the estimated value drew ofattentionThe themangroves valuevalue to of theof coastal marshfor value coastal wetlandsareasof coastal protection in termsand wetlands estuaries ofwas their in has been recognised for some time in the international the1997).recognised value of mangroves long before (Spaninks the recent & proofvan Beukering of this following 1997, thede WetTsunami et al. of 2005). December ChristensenMuch 2004 of(e.g. (1982) international Adger valued et al. work on the value of coastal wetlands and estuaries has concentrated on fisherycasetheoptionsconverting uses against values ofand mangroves mangrove mangrovesshowedof mangroves that clearing for to ecological land-usecropsin Malaysia; in certainin - planningeconomic Gammage areas. in linkagesBennett Thailand; (1994) in& valuedReynoldsa Lai mangrove (1990) commercial (1993) ecosystemcompared estimated and incommunitythe Indonesia thenet tourism benefits uses created and ofof a Fiji; Ruitenbeek (1992, 1994) compared mangrove management fisheriesstudiesBeukeringmangroves address and 1997). incarbonin directthe EI Salvador;Philippines;Those usesequestration, of that mangroves Spaninks useand theSathirathai none production-functionfor & vanharvestingattempted Beukering(1997) and tovalued estimate tourism, (1997) approach a mangrove valued indirectnon-use are management limitedvaluesarea values in suchby Thailand. (Spaninksassumptions as alternatives nurseries While & vanaboutthese for for criticisedproducedecological in relationships.by that a mangroveit lacked the ecosystem necessary underecological different understanding management (Rönnbäck regimes, & Primavera althoughBased on 2000). this studies work around was the world up to that time, Costanza et aI. (1997) estimated estuaries to Gilbert & Janssen (1998) also assessed the change in goods and services theandcycling,regionbe world's one recreational of ofdisturbance US$4.1natural the most value capital.trillion valuableregulation (Table per year. 3.2).habitats through This onprotectionis someearth, 12% with and of theircontrol the globaltotal of stormvalue value andof having ecosystem flood beendamage, services estimated food provided production as in the by The most highly valued services provided by estuaries include nutrient BiologicalNutrientDisturbanceService cycling control regulation Table 3.2. The estimated value of the world's estuaries 1994 US$ ha1yr1 21100 567 78 RecreationRawFoodHabitat! materials production refugia 381521131 25 TotalCultural Costanza et a/.'s (1997) estimates, although generalised for the entire world, and including 22 832 29 theseAfricantropical values coastand northlent in the much temperate Coastal more politicalWhite systems, Paper. weight were to usedtheThe coastal effectas the zonehas basis yet than forto hastrickle estimating been down seen theto previously.estuaries value of inthe general South or even individual estuaries, however. The Despite their probable inaccuracy, the sheer magnitude of root cause of this problem largely lies in the fact that the economic value of estuaries is not recognised by 19 decision-makers, whereas that of the damaging activities is relatively well understood. The economic sustainableAttachingimpacts,overlookedbenefits generatedand monetary byuse limitsusers of estuaries theandby values estuaries,potentialdecision-makers. makes to actual for theseand estuaries and the activities This potentialcosts results to directlygenerateassociated inbenefits activities comparable income, withassociated being their subsistencewith carried degradation, alternative with out the which and conservationoptions. areother have frequently benefits.negative and from1.6. studies of a specific type of value of a specific estuary to Severalbroad reaching valuation studies studies ofhaveValuation a number been carried of case out on studies South African of Southestuaries Africanin recent years, estuaries ranging estuaries. The results of these studies3.1.1. are summarised below. Subsistence use values mangrovesnearbyLike most communities. of provide the 13 mangroveto theA valuation surrounding estuaries study rural in was the villages country,undertaken (De these Wet to mangroves etestimate aLThe 2005). Mngazana the provide The benefits study estuarylivelihood thatwas inthebased benefitsthe Mngazana Eastern on tosocial the Cape has the third largest mangrove forest in South Africa. 50production.recreationalthreesurvey holiday neighbouring methods cottages Thefishery, recreationalsuch and atvillages as the were focus estuary. fishery, forused group construction, Thisby in discussionsmembers turn, community is a they offactor andthe provides provided localinhousehold encouraging community employment nursery surveys. the tohabitat take investmentto Mangroves men canoe for and the toursin women weresubsistence and and useused as for of fishing by honeysome andthe mangrovesgilliesDe Wet and et domesticto aL the 2005). local servants. community was estimated to be in the order of R3.4 millionSeveral (R0.5 toof R7.0the larger million; estuaries near urban areas support informal bait and line fish fisheries. One Taken over twenty years, the discounted net present value of the to2005).part-timeof (e.g.aboutthe moreThe Marphysa 3% subsistence mud importantof the prawn andstanding fishers,in Gorgonorhynchus)Upogebia this stock, respect, involved africana suggesting the in bait Knysnadominates is collection,sustainableonly estuary,viable the mud baitthroughuse. supports crabfishery, The damagingharvesting, harvest an with estimated estimated of methods, moreand fishing30 valuable catches full-time and (Napier threatensbait amounting and species et 200 aL the fisherywhilecatchesendangeredRhabdosargus hand is of worth spottedline Knysna fishan holubi. estimatedgruntercatches seahorse Indications Pomadasysare R0.7 Hippocampus dominated - are Rl .1thatcommersonnii millionby the capensis.small line per speciesfishery annum, and iswhiteand alsowith individuals, steenbras sustainablefull-time fishers particularlyLithognathus at present. earning cape The Iithognathus, at stumpnose leastsubsistence Rl 1- Most of the fishery's value lies in the set line poorlybybanned,(a)17 allowing000mud controlled per controlledprawn salesannum and collecting of primarily failsfromcertain to the andreachfish by estuary. targetingspecies.sales its full were potential. users, deregulated, and Management (c) co-managed (b) Marphysa of the with fishery andlimited Gorgonorhynchus could access, be more and valueeffective use added was if Currently operating under recreational regulations, the fishery is 20 3.1.2. Lamberth and Turpie (2003) estimated the economic value of estuarine fishery resources in SouthDirect and indirect fishery values Africa.estuaries,degreerecreationalarea The for of inshorestudy aassociation relationshipfisheries considered manne were with fisheries.was both included.estuaries. found direct between Someuse of 80fish catch estuarine within and estuaries estuary fish are size, and utilised, thetype role andthese of biogeographic estuaries species varyingas a zone.nursery in theirThis All types of fisheries ranging from subsistenceBased to commercial on available and information on catches for a number of thewaslandedincludedadded expenditure used tocatches, to thethe extrapolate value economy, by calculated anglers added existing in by onthe on subsidiary equipment theform data basis of to the the industries.of and contribution theremaining travelmarket Subsistence to valueestuaries. tofishing GDP of fishsites. and,fisheries The caught. in Thevalues the were latter caseRecreational were taken mayof commercialestimated asoverestimate the values gross as fisheries,comprise value value the of fisheries2003).valueinshoreenjoyment since Based wasmarine fishof onestimated coastal arethecatches typesone areas wastopart of be or association attributedof justalternative a recreationalunder to of estuaries.recreationalRl different billion package (1997species activities that Rand), with mayin estuaries,the which include absence works aboutother of fishout 21%elements, (Lamberthto ofan the average suchvalue & Turpie as ofof The total value of estuarine and estuary-dependent R13 230 per ha for all South African3.1.3. estuaries. Recreational use values travelwinterThemethods recreational costsurvey. analysis,(Turpie The value &questionnaire activitiesJoubert of the 2001). atestuary Sandvlei, included A shortwas questionspreferences estimatedquestionnaire about using for was differentthe both administeredTheorigin travel Sandvlei parts and cost ofmode toSandvlei,estuary and users of contingent travel liesat and Sandvlei withinfor influence use valuation Muizenberg duringin the of a in Cape Town, and is an important open space area. thenatureinterviewedancrime majority entrance and reserve, werecleanliness were fee out parkto Capetonians, walking,contribute and on visitationwater bird towards but areaswatching, rates.a summer contributedmaintenance, The fishing contingentsurvey and equally would conservationpicnicking, valuation to yield overall differentrather question and value. thancrime results sought doing prevention. on awatersports. origins. willingness Theto pay The travel cost analysis All visitors In winter, Thesuccessfullycurrentrevenuesuggested contingent expenditure maximising a applied,totalvaluation annual onfee and methodmanagement of recreational may R5 could beyielded preferable be is use acharged,justifiable. very value to similar statedof but ThisR71 thisvalue preference study3 would 500. of showsR640 The reduce methods, demand 000.that the theThese numbers curveintravel a figures situation alsocost of visitors indicatedsuggestmethod where by canthat thatmost60%. be a visitorsresidentby visitors are andon from single-destination visitor all over use theof the country trips.estuary as andwell theas fartherassociated afield. recreational Turpie & Joubert value on The(2005, the Knysna basis in prep) ofestuary, a described survey on of the other hand, has spawned a holiday resort town which is frequented theAfricanKnysnaattractionsestate estuary, and agents for foreignerrepresenting inall Knysna.andrespondents. a visitors, questionnaire Visitingthe value respectively.An Knysna estimated of surveythe viewconstituted ofRl to 1016.4 Knysna - R2 respondents. 76% billion residents. and of 35% property The In of addition, estuarythe value reason ratesthewas fortotal attributed among their value trips the addedto top forviews Souththree by of The estuary contributed about 60% of the enjoyment of thattourism-relatedused.complicationsConsumers' would Respondents result surplus expenditureinof negativemultiple-destination were could divided impacts attributed not be over on reliably the tripstheto the estuary.issue and calculated estuary theof ForeignKnysna's fact was usingthat andestimated growth,the theSouth model Travel but African to was the be Cost majoritytooabout visitors Method,sensitive Rl werewould billion because toagainst spend assumptionsper year. growth 24%of the and 32% less time in Knysna, respectively if the estuary's condition were significantly degraded, resulting 21 willingnessmanagement,in a hypothetical to pay and loss was 60% ofestimated wereR260 willing million to be to per R34pay annum. millionto maintain perEighty annum. the percent estuary's of currentrespondents conservation wanted status.better estuaryOverall hedonicratherwithrecreational users. than pricing Tourismause realistic method,value value estimateof fivewas was estuaries, adopted ofestimated this value. tobased establish in termsA on price-premium existing theof expenditure portion data, approach,ofkey property only,informant thus instead value interviewsrepresenting attributable Inof thethe andfirstdata a such interviews tominimumintensive estuary study on estuaries, Cooper et aI. (2003) undertook a preliminary valuation of the 3.3).expenditureattributedonviews. the Theprices to data ranged estuaries of wereproperties from obtained ranged R7 adjacent million by from means at Rlto Richard's millionestuaries of interviews for Bay withKeiskamma to with andover estate without R400 to agents, millionR2 estuary billion inat which theviews. for BreedeKnysna, they The were estuaryproperty and questioned tourism (Table value Table 3.3. Lower bound estimates of economic values associated with selected estuaries (R millions) TourismValues expenditure R33l.5Berg R4l4.5Breede (Cooper et aI. 2003) RichardsUMhlatuze Bay I R6.9 Keiskamma R54.O KnysnaNo data Property values A case study of the property value of the Silvermine estuary, Clovelly, Cape Town, showed that Rll,9 R50.0 N/a Rl.0 R2,000.0 positivepreventativebenefitspropertythere is considerablederived.net values present expenditures before value benefit and (NPV)and afterin damagerestoring andrestoration a benefit costsdegraded were avoided. cost systemsused ratio A as ofcost 4.58:1.(Vana proxybenefit Zyl The for and analysis thevaluation Leiman aesthetic indicated 2005).study and didThea recreationalsignificantly not change include in In addition, there was a minor flood attenuation benefit that was estimated in terms of areasdemonstratesthe within an theurban significant setting. benefits of maintainingecological aesthetically pleasing, healthySimilarly, green openit can space be shown that allowing estuary degradation can negatively affect the economy.benefits associated with increased ecosystem health. The Silvermine project thusaffectNatal,etUsing aI. having (2005) tourism,benefitto be a atroughly transfersignificant resultingleast R285estimated (results impactin anmillion. ofestimated onthe similar the total local studies), economicloss economy. of betweentravel value cost, ofR58 theand million Kongweni contingent and EstuaryR129 valuation million in Margate,methods, per annum, KwaZulu-Nahman and The estuary is threatened with declining water quality which could use value of South African estuaries3.1.4. in general and the KnysnaA contingentestuary in particular.valuation study was carried out by Turpie & Savy (2005) in order to estimate the non-Non-use value This entailed a heardgeneral.respondents(WIP)survey of forof theThere 505the Knysnaclaimed conservationrespondents was a estuaryto low be levelwilling in ofor the "Knysnaestuaries of toWestern knowledge contribute Lagoon'. in Cape the ontowards form which Westernestuaries, of thesought annual Capeconservation but to residentscontributions.two ascertain thirds of had South ofaverage respondentsa value African willingness of Rlbiodiversity had9 million atto leastpay forin Some 71% of survey South African estuaries, which extrapolated to all South Africans, suggests a total non-use value for 22 theconservationSouth Western African Cape that estuaries they population would of some allocatewas R93estimated to million Knysna as per R2.7 estuary annum. million. itself, Extrapolated the total non-use to all South value Africans,of the estuary the non- to Based on the proportion of their WTP for willingnessablebiodiversityincome.use valueto benefit, Whento of payconservation the queriedas was Knysna most positively asimportant and estuaryto theirthe correlated more thanmotivation was reasonsselfish estimated with for theirmotives, such contributing statedto as be such others some level as to being ofknowingR9.7estuary interest able million conservation,that toin makeconservation one'sper annum. aown living respondents children andfrom with estuaries. would their rated be Respondents'

23 4. CONSERVATION PLANNING Jane Turpie and Takalani Maswime of society. They are productive systems 4.1.that provide services suchSouth as Africa'snutrient estuariescycling, nursery play a significantareas for role in contributing to the social and economic well beingIntroduction watching,settlement,amenityetmarine a! 2002). values. speciesboating, urban Estuaries, developmentandfishing staging likeand other swimmingsites and naturalforrecreation. migratory (Harrison resources Recreational birds et aL such(Harrison 2001). as uses mountains, et of al. estuaries 2001; rivers Hockey include and & oceans, baitTurpie collection, 1999,offer positive Turpie bird Apart from their ecological importance, estuaries are also favourable sites for human harbourdevelopments2000; Turpie development et within aL 2002). themas well Many and as inSouthindustrial their African catchment effluent estuaries discharges areas, are and currently Despite(Harrison are frequently undertheir et aLimportance, significant 2001).used for As pressure domestic estuariesa result offrom andstill all constitute one of the most threatened habitats (Whitfield thatlossthese Southof pressures, biodiversity Africa hasmany (Turpie made South et to aL theAfrica 2002). international estuaries There is community. havethus an become urgent Indeed, functionallyneedThe South forprotection conservation Africadegraded of is estuarine a signatoryplanning.with a biodiversityconcomitant of the UN is already provided for to some extent by the commitments Conservationrecent(1992),Convention National and Unionhas(1985),on SpatialBiodiversity taken Policy the stepsBiodiversity Abidjan framework (Rio towards Convention1992), Assessment (1988)planning Agenda and (1985), for (Driver the21(1992), conservation, UNthe et FrameworkWorldaL the2004, Ramsar Heritageincluding Turpie Convention Convention 2004b).Convention for estuaries, on (1971),Climate (1972), in the the Changetheforni Nairobi World of the of protectedareas to be areas protected. of various There categories. is provision4.2. in legislation to mandateBacked these by plansthe above, though conservation the formalisation planning sets the bottom-line in terms of defining minimum setsThe development of Conservation Planning approaches ecologicalhocexploredConservation way ofaround goals selecting planning andthe inworld conservation isterms a inrapidly recentof integrating evolving areas years. in conservationSystematicarea the past,of research and conservation and is indevelopmentbecoming which planning numerous increasingly needs replaces approaches in a holisticregion. the relatively inhaveHowever, terms been ad of a involvesnewconservationenvironmentalmajor protected challenge several planning patternsareas principles, for conservation to has, and protect andoverprocesses has biodiversitythe planning numerous past (Knight years, is(von distinctive&to becomeCowling identifyHase et characteristics a2003).priority al.widely 2003). In areasaccepted South Systematic (Margulesthat Africa methodology incorporate and conservation & PresseyAustralia, biologicalin establishing 2000). systematic planning and 24 Conservation planning typically involves the following steps (based on Pressey &forSet Cowling species, targets: 2001): vegetationIdentify conservation communities goals and forestuary the region types, andand setquantitative quantitative targets conservation for minimum targets size, conservationSelecttargetsGapconnectivity analysis: newhave orsites: alreadyareas otherReview Select for designbeen considerationexisting additional achieved criteria. conservation areasby managers using areas, algorithms as assessingadditions to to identifythe established extent preliminary to areas. which setsquantitative of new findingmaintenance(e.g.evolved Cabezaspatial to incorporate surrogates&of Moilanen ecological ecosystem for2001). and them evolutionary One processesand of setting the biggest andprocesses. targets now challenges gives for these greaterHaving is (Presseysetting emphasis first spatially-explicit concentrated et toaL biodiversity 2003). on Anothertargets the persistence representation for key the of species, conservation planning has generally This involves identifying the processes and 2003).earlyrespects,persistencechallenge Much on inthe ofisthe of C.A.P.E.itsdelivering targetedprocess, success programme populations acoupledhas plan been that withhas attributed andnot setscientific onlymaintenance the tostandardachieves itsrigour, two-pronged offor resulting representativeness biodiversity systematic approach in wide conservation(Reyers ownership of involving butet aI. which planning 2002).of stakeholders the ensures terrestrial(Balmford the In many 2003).factconservation that species-level plan. The planning C.A.P.E. cannot planning be entirely processes substituted also yielded byIn addition,a somehabitat-based importantit is becoming approach lessons, increasingly (Balmfordsuch as recognisedthe that conservation planning cannot take place in theredirectconservationto isolationincorporate hascosts been of involved planningan species littleunderstanding (e.g. integration (Abbitt geography Balmford et of aL of socio-economic and et2000).ecological aL human 2000, Nevertheless, andFrazeedevelopment pressures economic et whileaL 2003,and patterns considerationsthere values. Moore has in beenorder et aI. some into2004, regional-levelassess consideration Osano vulnerability et aL planning 2005),of the in There have been some attempts anidentifyinginitiatives increasing (see therole most inFaith conservation appropriate & Walker planning. 2002).types 4.3.of conservation intervention. Thus resource economics is playing Conservation Planning in the Eastern Cape Socio-economic factors are also potentially very important in ThicketbeenSouth Biomemade Africa inthroughand developing having the overestablishment and 1550 refining plant of techniques species the Subtropical (Knight to identify &Thicket CowlingThe priority Ecosystem Eastern 2003a). areas Cape A andPlanning great Province safeguard deal (STEP) of is progress dressedSubtropical project. haswith the Subtropical Thicket, one of seven biomes found in 105outcomesSubtropical"(i)STEP conduct, 454 was km2 of aThicket thefourtogether, was planning year centredBiome, with(July exercise" andonkey 2000-June the (ii)stakeholders, Subtropicalwork (Cowling 2004)closely et Thicketregionala withaL comprehensive 2003). key Biome conservation stakeholders The and planning overlapsconservation planning to domainensure the projectWestern theforplanning thisimplementation whose project,and exercise Eastern goal an was area inof Cape the to of (CowlingThesystematicProvinces conservation et (Cowling conservationaL 2003): planning et aL planning 2003). component (MargulesThe approach of & STEP Pressey of STEP comprised 2000). was guided seven by major the principlescontractual and requirements practices of 1. Develop layers of potential land use pressures to biodiversity. 25 AssessPerformPrepareIdentify the targets conservationtables extent andfor to biodiversitywhich data planning matricestargets features.analyses. are for achievedconservation for biodiversity planning analyses. features conceptual and operational system underpinned by three principles:The conservation (i) ecologically planning sustainablePresentIdentify component aoutcomes systemland of STEP of to conservation stakeholders.has been successful areas. because it adopted an explicit spatialvegetationexplicitconservationmanagement surrogatesconservation types, (ESLM);assessment three for targets ecological (ii) wetland systematic (Cowling for biodiversitytypes,and evolutionaryconservationet 48 aL species 2003;pattern processesKnight ofplanning; and large process. & and Cowling and(Cowling medium-sized (iii)Biodiversity implementation2003). et aL 2003).The featuresmammals, plan Conservation as targetedaimed an and integral fiveto were achieve targets,types part 169 of theEnvironmentalofbiodiversitywhich this four are project. forest cornerstones features vegetationManagement used of types.insystematic thisAct no.project.This 107 conservation Someof 1998), success remarkable planningtarget has for (Margulesbeen wetlands targets achieved were &is Pressey,particularly setat the at 100% conservation2000), relevant, for were wetlands especiallysetplanning for and all As required by existing legislation (National Forests Act no. 84 of 1998; National andplanning.knowing degradation that The estuaries STEP of estuary wetlands are stillbiodiversity. conservationon the lower decktarget compared will promote to otherthe Inlong-term ecosystems addition persistence to inthe terms STEP ofof ongoing conservationproject, loss the CSIR Environmentek has been contract to undertake a conservationensuresCoastSustainable in aits sustainable Development planning assessment approachand Project.equitable and biodiversitywhich This manner integrates project whichaction aim the maximizes isplan need to" aspromote to part enhance the of benefitsthe the usebenefits Wild naturalfor Coastall to people theresources Conservation people of the of area the andWildarea long-term ecological integnty"(CSIR 2004). This project will also use the systematic (i)bywith conservingmore the needdetailed tobiodiversity conserveinformation priorityin onpriority forests, areas areas riversand of resources theand Wild estuaries Coast(CSIR will (marine,2004). beThe used. planningThe freshwater new domainvegetation and ofterrestrial), the map Wild supported Coast (ii) the Conservation and Sustainable Development Project will be: boundariescoverterrestrial the north-easterncomponent of the domain will and also(CSIR south define 2005). western the The estuaries boundarieslong-term used vision of in the the for Keiassessment, the and"Utilization overall Mtamvuna project (iii) of the the riversis planning naturalthat were it will resources domain, predefined promote will of the Wild Coast in a sustainable and equitable manner which classification(CSIRwas to 2005).be based and on prioritization the biodiversity of South importance African and estuaries sensitivity onmaximizes theofEstuaries the basis estuaries theof were healthbenefits recognisedalong and for the conservationall Wildpeople as key Coast of a theWild area Coast and ecosystems. ensures its long-term Conservation ecological planning integrity". of estuariesPriority estuaries for conservation on the Wild Coast were selected based on the accountbeterrestrialimportanceFurther conducted (Turpie protectedeffort (see using 2004). isbelow; required areas expert Turpie into opinionto account. refineet aL rather (2002),the However, recommendations than taking quantitative because representivity of algorithmstakingbudgetary and soclo-economic linkages requirements,or complementarity to existing considerations the studymarine analysis. had and tointo 26 wellfor the systematic, scientific community.integrated conservation A substantial4.4. planning amount of estuarieswork has Whilebeenwhich carried manyinvolves South out a onrange African estuaries of estuariesstakeholders which do will enjoy as some level of conservation status, there is still a needConservation Planning specifically for estuaries estuaries.2001selectionestuaries,be able and to methods, subsequent informTurpie such (1995) Maree worka process. pnoritised and established Whitfield Among estuaries the (2000) numerous botanical in performed terms studies importance of awaterbirds which similar of collate a analysis large in informationa proportiontest of fish,of alternative and onof South Colloty reserveAfrican et aL In a collaborative effort of the estuanne research community these analyses were later alsoManagementNationalplants,updated developed invertebrates, usingSpatial Programme complementarity guidelines Biodiversity fish and andfor Assessment in abirds analysisstrategycollaboration into accounttofor (Driver produce the with conservation (Turpieetboth aaL minimum estuary 2004). et aL of managersAs 2002), representativeestuarine part whichof andthe biodiversity was Easternscientists, set also of estuaries, Cape inadopted TurpieSouth Estuaries (2004)Africa,takingby the which(EPA5), wouldincluded as ensure co-managed the proposalthat all estuanneestuaries for three conservationundergo types of active management areas management. (ECA5) of orTheestuaries: as latter estuarine studiesas estuarine management all acknowledged protected areas areas(EMAs) a need to improve some of the datasets, and the need to take Africanthegaps,uses.soclo-economic trade-offs estuaries, andWorking Turpie involved towards identifiedconsiderations & Hosking in estuary this ongoing (2005)goal, intodevelopment dataTurpie collatedaccount collection et existingbeforeaL and (2004) efforts in finalising workthe collated and allocation on undertookathe set much economic of of estuanne freshwaterof additional the value existing protected ofworkflows estuaries. data toto areas,fill alternative on some Followingall such South key as (e.g.recentlynational-level tourism conducted value, work onexistencea pilot the valuestudy value). of(2005) estuaries on the in estuanneterms of their attributes fisheriesA conservation that (Lamberth generate planning &different Turpie exercise types2003), is of underwayTurpie value for estuaries of the Cape Floristic Region, under the typesEasternC.A.P.E. of protected Cape. programme areas. which This willprocess integrate willdevelopment4.5. laterecological be expanded and economic to include aspects the rest into of the the selection estuaries of ofdifferent the Economic trade-offs in estuary conservation and values(generatingareservices dependent derived such direct from ason nursery theusethe existencefunctionalvalue) functions will of healthhave certain that altered of yield featuresthe ecosystem.ecosystemvalue of elsewhere biodiversity functioningNevertheless,Estuary (indirect (see thatvalues chapter values)ecosystems affects are 3). derivedtheirand All of fromthatindirect these both are the valuesandexploited fromnon-use non- the direct use of estuary habitats and products, from the beoffmarineexample,use sustainable.between values, fisheries a systemdirecteven than inuse incases one valueswhich in where which recreationaland other exploitationrecreational types fishing of isfishing value sustainable levels (Figuredoes are not high (can5.1), occur. may beeven maintained Thusnot where deliver there direct isintofewer essentially use perpetuity). fish is managed to ainshore trade- to For 27 Direct use values Figure 4.1. Hypothetical trade-off relationship between direct use values and other types of Indirect + non-use values Another way of looking at tradeoffs is to consider how different types of development might affect value generated by estuaries. whiledevelopmenthighdirectestuary indirect havinguse values value and negligiblearound (Figure (e.g. non-use theperhaps 5.2).impact estuary value, a on little owingmight biodiversity derived addto its significant byhigh and passing level ecosystem valueof hikers), biodiversity in functioning.terms and the ofand directundisturbed healthy Thus uses overall functioning. such estuary values as ecotourism, would Sensitive would have be With no development, an estuary would be expected to have little or no relativelyagainvaluetheraised. valued ofbeyond As ecosystem magnitude developmentattributes some goods oflevel. and the around ecosystemtwoand curvesservices an estuary servicesdescribed may progresses initially are in Figurelikely be enhancedto to 5.2. a become resort by area, somewhatincreased direct useuse,impacted. value but would increases, Thus decrease the total but The point at which value is maximised would depend on the nature and IndirectDirect use + non-use values values None Sensitive Heavy Industrial magnitude curveof direct is dependentversus indirect on the and relative non-use scales values. of the Note other thatFigure two the curves, 4.2.shape Hypothetical ofbut the is totallikely relationship value to be roughly between the level of estuary development and the Level of development hyperbolic. Note that the development scale could be logarithmic. 28 values, plus the additional direct use value that would be securedIn general, by ensuring the values that associateduse levels with are conservation of estuaries would be the indirect and non-use theestuaries.sustainable. future, This i.e. The awould costlatter includethat would is borneaccrueany use mainly mainly that isin in restricted the the present. future. in the presentThe inopportunity order to secure cost aof flow estuary of value conservation in depends on the level of protection applied to In some cases, complete protection may be theWhicheverThusconservationrequired, most the valuablevalues the in goals case,which of alternative conservation may the case opportunitybe achievable theuse. opportunitymight cost be with of maintained conservation certain costs wouldtypes while would of extendthere development be are theto also anybenefits some typethat thatare ofdevelopmental use.woulddeemed be compatible.obtained benefits. by In other cases, whichthepollution. biggest means Propertiesthreats that the to opportunityestuanneadjacent to fauna costsany typeand of protecting offlora wetland in terms estuaries tend of to habitat be inUndeniably, more urban loss, expensive areas exploitation, property are (Boyer likely development disturbance to& Polaskybe high. is2004),andThis simultaneously of significant economic value and also one of aoffshealthcreates later andare chapter.of atohow estuannesignificant be they found should systems withchallenge regardbe throughmeasured for to conservation the changing demandand incorporated the plannersfor quantity development inand andconservation decision quality of catchment ofmakers. planningfreshwater Similarly,areas, are inputs. dealt which complex withThese affects further trade-trade- the in

29 5. WATER RESOURCE PLANNING Jane Turpie and Stephen Hosking resourcesimplementation5.1. while minimisingof four types ecological of regulatory damage: activities in order toThe make White optimal Paper use onof our Water country'sIntroduction Resources water and the National Water Act of 1998 require the 1. source-directedtheresource,resource-directed resource and(the controls,onResource that measures, basis, i.e. Quality controlling setting Objectives);i.e. cleardefining impacts numerical a ondesired the or waterdescriptive level resource of protection goals through for the for thequality a wateruse of managingObjectiveseconomicof regulatory incentives demandare measures met; on such water such as resources levies as registration, and in fees, order in permits,to order keep to utilisation ensuredirectives that within and the theprosecution,Resource limits required Quality and programmesensuremonitoringfor protection; that the the for statusResourceresource of themanagement Quality country's Objectives andwater impact resources are beingcontrol onmet, as a and continualand when to enable necessary. basis, us in to order modify to AdaptiveManagementroughly Management corresponding Agency (SAM), (CMA). to major in recognitionWithin catchment these of theWMAs, basins, fact thatit each has the beenof methods Inwhich orderproposed will for to decisionbeachieve to managed use making this,a system theby with acountry Catchmentof regards Strategic has been divided into nineteen Water Management Areas, to Managementandobjectives.managementwater the resource implementation Within Plan. also allocation each lends catchment,of itself the and measuresto management development the agency described arewill of creativebestill above, involved to be asstrategies fully wellin the developed as development thefor achievingdevelopment and oftested. the a catchment ofnational a Catchment policy vision Adaptive waterestuaries,(RDM) resource for determiningwetlands within theand the catchment2. river resource reaches. quality The objectives reserve whichis the describewaterOnce quality there the environmental isand a vision quantity for 'Reserve' requiredthe catchment, offor each the the CMA will carry out the resource-directed measures Water resources within a catchment include groundwater, assignedclassessettingclassprotection (A of and to tothe of D)lower will basicreserve which be management humanallowed willand determine the needs less Resource classes. potential and the aquatic futureQuality perturbation systems.level Objectives. of andhealth Each will Resources of resourceyield that less resource, assigned willwater be forassignedand to other higherwhich uses a managementwillmanagement than guide those the studies at present. 2 Since CMA's have not yet been established, DWAF: RDM Directorate is undertaking the RDM 30 Up till now, the classification of estuaries and other resources has involved ecologists making a processbyministerrecommendation the research toof set developing the community has final for then MC.the a fully beenor MCThe by integrated onlatterstakeholdersused the processtogether basis Classification inof haswith general. the hitherto other health Recognising Systemconsiderations not and been importancewhich standardized this, (e.g.takes DWAF water ofecological, has orthe demands),subject embarked system. social to scrutiny byon andthe This requiredcouldeconomic easily to factors ensure be construed into that account that primarily the in ecologicalsetting as thean functioningMC,ecological and hence process.of resources theAs reserve the is main maintainedand purpose allocatable in of an the portion acceptable Classification of flow. state System is to ensure the protection of water resources, it Indeed, the Classification Process is classificationprotectionmuchrequired(through like byimplementing theto law, (like importantEnvironmental which EIA) is simplyRQOenvironmental not onlyandImpact serves SDC).about Assessment to resources achievingensure a minimum(EIA)inminimum the processeconomic standardstandards, is technicallydevelopment of but health involves designed of process.aquatic choosing to ecosystems, offer between some In other words, classification could be seen as something However, aboutofsocialranges an optimal consequences. howof options much freshwater regarding water inflowto theallocate ratherlevel of tothan protection estuaries the idea of should ofnatural a freshwater not resourcesWe be advocate based reserve. and solelytheir that In othereconomic, management on thewords, minimum ecological the of decisionfreshwater legal and allocations to estuaries should be guided by the idea values.estuaries,reasonmarginalrequirement. catchment social by reference values management of to the current inflow may estimates are bebrought guided of theinto towards relevantequivalence optimal marginal with allocation thesocial marginal costs of freshwater andsocial marginal costs. inflow For social into this The allocations of freshwater inflow into South African estuaries are optimal when the 5.2. Economics addresses the Economicproblem of how trade-offsscarce resources inherent are allocated in amongwater unlimited allocation wants. Waterbeopportunityconsumptivecompeting found resources which uses. cost use. are maximizesin If Onthescarce the formenvironment other and societalof lost havehand, economic welfare.isto ifnot bewe valuedallocated are productionSocietal overprotective then between welfare all and water social thestems,of resources the environment welfare. environment,in part, will An from eventuallyoptimaland totalthen a number balance economicthis be willallocated of needshave other output an to subsistence).needsand its distribution(in termslt also needs of(which water to translates balance supply the andinto needs householdthe supply of present cash of ecosystem andincome), futureThe classas generations. goodswell of asthe andfrom resource servicesmeeting affects basic needed the human amount for of economic production from activities which use andallocatedwater services or affect to these produced water activities. supply, by functioning in that the resources, higher the as levelwell asof otherprotection Thevalues value of associateda system,of water the withis most less these readilywater systems. can appreciated be as a direct input into economic production. Water is However, it also affects the amount of economic production due to goods theanhenceGrossmeasured essential productivity societalDomestic inputas they ofwelfare. into Product).water make all sectorsdiffers a Nationaldirect enormouslythat contribution contributeincome statisticsfrom to to economic thesector overallare totaken output sector. economic to measuredbe indicators output in of the ofthe householdnational economy, accounts income, although (e.g. and These values are relatively easily 31 Economic production cannot occur, however, without the emission of waste products. The use of waternegativeThesecapacity,aquatic resources environmental environment. externalities the environmental to dissipate indamages,Furthermore, the economic the damages wastesresulting when production that is from wasteseldom impact the process.disposal reductionquantifiedon the intoother of asaquatic water river economic usersquantity systems arebenefits and exceedssimilarly quality, provided theiraccounted are absorption known by the for. as butvolumes).agriculturewhich the intercept economic These (which stream activities consequencesyields flow, arepollutants) such similarly as ofafforestation, andappreciatedthe impactshydropower and in that terms activities generationthey of theirhave thatOther contribution modifyon(which activities aquatic return changes toaffect ecosystems flows,the nationalwaterflow such patterns supply as economy,and dry otherin landand the production of economic outputs. These include activities, conventionalproductiondownstream and users economic societal has not analysis welfare, generally or though in been national taken not allaccounting into of account.these statistics.valuesFunctioning are recognised aquatic or ecosystemsaccounted for generate in goods and services that contribute to economic The output of aquatic ecosystem dependentdetrimentrecently,attenuation,goods, such the ofon valueasis resources,them. affected fish, of reeds ecosystem by their andthe quantityfunctioningother goods natural andand servicesand qualityproducts, the ofhavewellbeing waterand largely services, flows of been peopleinto such ignoredthese asthat waterresources. inare decision-making, purificationdirectly or indirectlyand toflood the Until relatively on aquatic resources, and the goods and services emanating fromThe themtotal value(Turpie derived & van canZyl 2002):be considered as a function of both the economic activities that impact UA U (Xi, X2, ... X; Qi, Q2, ... Qm), representsactivityresource.activities may which the decrease magnitudeimpact on the the of quality sugarresource, orcane quantity and production, (Q1, of Q2, freshwater the water goodsWhere abstraction andUA isservices. and the pollutiontotal utility, associated or value, withderived from theThere system is aA, complex (Xi, X2, matrix... X) are of interactionsthe economic between these variables. An increase in economic ... Q) are the goods and services provided by the For example, if X1 accountedexamplecompetitioneconomicthis production represents for),activity for mayinwater, that X1 impactthe themayor utility duecost ondecrease toof ofa theacertainloss single change of the Q1wetland multi-user output due in function to function, ofan of a increase thesecond Q1, sayresource, which Q1. ineconomic X1 affects thenis borne the activity,the bycosts productivity the either areuser. 'intemalised' Inthrough of other X2. words, direct (i.e. Similarly, an increase in one type of If this ensure(Turpieirrespectivereality,the user that different& would van theof the Zyl overallonly users loss2002). choose utilityto are theThus to involved, touser society increasethe who onus UA andgains X1 isis a onmaximised. ifonly user the the from benefit gainingdecision Q1, of because only makersdoing from so the (DWAF, isX1 costsgreater will areorthus thanthe external increase CMAs the lossto in the production future),of firstQ1. user to In illustratedallocationlimitedrepresented economic bydecisions. inthe terms productionvalue Theof that a maximumsimplified can possibilities be obtained two-dimensionalvalue frontier. that from can resources, be production obtained and Trade-offsfrompossibilitiesthe type different of tovalue frontier be allocative made generated (Figure in combinations the depends4). classification There on isis of estuaries (or allocation of water to estuaries) can be In reality, current allocations would probably fall within whentheecosystemsillustratesthis lawcurve, viewed of thediminishing since in inopportunity terms terms use of ofreturns. theaquaticMCs costs loss assigned Theof inresources licensing valuesexample to watergenerated activities is given not resources. 100% in that byFigure thoseconsumeefficient. As 4 showsmoresystems. or water impacthow The isthese onallocatedcurve water trade-offs is convex suppliesto agricultural might because to aquaticappear and of The production possibilities frontier andother vice uses, versa. so the opportunity costs due to losses of ecosystem goods and services are likely to increase, 32 (a) (b) economic activities that consumeor impactwater supply on Value of PPF extractedQuantity water of PPF ecosystem goods & services Value of Class of resource C BA example of theoffs trade-offs between between allocating the water value to of impacting ecosystem activities goods andversus Figureservices to aquatic 5.1. delivered Hypothetical ecosystems, for each classproduction and (state (b) anpossibilities of health) and frontier the values showing generated (a) the economicby upstream trade- flow abstraction. themselves.inputs, the In marginal ecosystems opportunity whose functioningcosts (in terms is highly of losses sensitive of Theseenvironmental to the trade-offsquantity values)and are quality also of influencedassignment of freshwater by to the a characteristics of the resources (aquatic ecosystems) wateraquaticintegratingspatiallower could future implications, ecosystems, be ecological MCminimised would in conservation andthat beby theeconomic higherconcentrating opportunity thanimportance issues for costssupply a is more furtheris of correlated fromincreasing robust highlighted more ecosystem with economicrobust sensitivity by ecosystems.the (Figureoutput complicating (e.g. from 6.2). rivers, The consumptive This fact smallimportance has that estuaries), important in uses some of of whereas in others, it may be correlated with robustness (e.g. large estuaries). PPF: Robust ecosystem economic activities that consumeor impact on Value of PPF: water supply s. Sensitive ecosystems. s. on water supplies to aquatic ecosystemsFigure and the 5.2. values Hypothetical generated differences by those inecosystems the nature forof trade-offs between values that impact sensitive versus robust ecosystems ecosystem goods & services Value of 33 5.3. How catchment management will influence trade-offs possibilitiesoutset.allocation, This it willfrontier,is critical not only and to change addresschanging the the its magnitude issueshape of towards maximising of the trade-offsthat ofefficiency a more involved,Irrespective robustof water but ecosystemof also use the expandnaturein a catchment(Figure ofthe the production 6.2).systems at the involved, and thus the types of trade-offs involved in water In thatincreasingexternalitiesother economic words, economic consumptive perreturnsthe unitprimary output(monetaryoutput issueuse withoutof value economicto and consider changing ofnon-monetary) water production is the howwill class beto are obtainperreduced. of minimised.aunit resource. the of mostwater efficient consumed use ofare water maximised, resources, and so This also increases the possibility ofIn this way, the opportunity cost of - . &PPF: supply improved management demand economic activities that consumewateror impact supply on Value of Figure 5.3. Hypothetical shift in the production possibilities frontier (PPF) resultingimproved from demand and supply management of catchment resources ecosystem goods & services Value of 5.4. lt is generally accepted thatDefining sound water optimum resource managementfreshwater requires inflow that the benefits and levelprinciplecosts where of differentapplies the positive to water the allocation allocations difference of betweenbefreshwater compared the inflow total and intovaluean optimumestuaries. and theThe determined total optimum cost of (Loomis,freshwater this inflow 1998). (river) is maximised, The inflow same (Q*) into a given estuary at any given time is defined at that wouldforgoods,servicesor putan be increment differently,willingfor generated instance, to payor where decrementfrom into areasconsume river the suitablemarginalinflow of the intoservice,services, for social estuariesboating, that valueand is swimming aremarginal the of yielded sumthe inflow benefitofand and each fishing.3 equalsconsumed is individual's what theTotal they mainlymarginal marginalbenefitwould in be the issocial benefit, whatwilling form cost.the of to publicpublicpay The MVI. Public goods provide nonexclusive benefits to everyone in a group and can be provided to one more user at zero marginal cost. 34 the value of the water in its best alternative use, for example, in irrigatingThe total agricultural cost referred crops. to above is the opportunity cost of the water flowing into the estuary, that is, optimumis=total thegreater cost) marginal quantity thanis maximised. benefit.the and value vice(Figure A per necessaryversa. m3 9.1) ofChanging inflow condition into circumstances thefor thisestuary, optimisation wouldthenOptimisation inflow be to expected take into place the takes to estuary is yield thatplace differentthe is at more marginal the valueslevelthan cost ofthe at freshwater inflow where the net benefit (total benefit minus If the value per m3 of water in the best alternative use to the estuary analysis.themaximisingbaseddifferent beneficiaries on moments expressed solution. of in, estuary Thiswillingness or periods depends, goods of,to and pay,intertime. services. thea/ia, In addition,value on theThese maximising relative it is implications important income solution tostatus need bear may toof innot bethe mind necessarilyconsidered users that of since freshwater bein valuesa the welfare utility and are RANDS MV MC RANDS MV2 'D G MV2 F MclMCI 01 03 02 0' Figure 5.4. Expected Marginal Social Value and Marginal Social Cost functions. The optimal RIVER INFLOW INTO ESTUARY IN CUBIC METRES freshwater inflow is defined as Q* inestimatevalue South of Africawaterthe latter (Hoskingallocated in South et to aI. Africaestuaries 2002), - using but and there marginal to alternative has beencost and lessuses. willingness-to-paywork ThereEfficient done have on allocation estimating been (WIP) numerous of forriverthe agricultural former. water attempts in South land to Africa requires management to be informed on both the 35 A proposeddesigned5.5. forprotocol the classification for a National of resourcesWater Resource into intotheir Classification managementthe classification System classes (NWRCS) (DWAF process 2005).has recently ProposedThis system, been protocol for incorporating aquatic ecosystem values which(scenarios).basedateconomic a iscatchment stillon analysismeasures,to be scale. refined of the and ecological,main tested, departure issocial envisaged from and the economic tocurrent comprise implicationspractice seven will steps. ofbe a that suite Apart classification of frompossible including willconfigurations take socio- place In other words, all resources in the catchment will be classified at the same time, unite uf an4isie Step I: Delineo/e infrastructure(a) Describe water resource and des ,don Detain quo and(b) Delineation referencewetlands andcondition of descriptionaquifers, estuaries, of FES/PS rivers EGSAscommunities(e) Delineate andand theirdescribe use ofsocio-economie water and water(d) Identify and EGSAs and descnbe sectoral use of V I(e) d andOverlay map unitslinkages delineated between in them Steps lato of(f) AnalysisConsolidate (TUA) and define Integrated Units Step 2: Link units oJunui;'ci.ro,,d define i-du.tioiiships andLink withinand define IUAs biophysical-socio-economic relationships between 4 Step 3: Deternían und quan4/j dass thresholds downstreamDetermine and linkages quantify class thresholds of the current ecological categories (A to F) to account for upstream- y Step ¿: Description level(a) Define constraints non-negotiable and second-level constraints constraints) (national- and regional- of the carchmenrau$ainabildfy baseline configuro/ion scenario , configuration(b) Describe the scenario catchment for catchment sustainability baseline Step 5: Description uf alternate scenarioconservationfor(a) configurationswaterIdentify use, future ecosystem pressures for catdunenr use and and priorities subset(b) Identify of scenarios feasible scenariosfor detailed and analysis select a catchinent,ecological(e) Describe implications regional socio-economie and of national scenarios and scales at Step 6e Evduati.rn of dtes 'vesrcrnuios ith daheholdars criteriaFacilitate cost-benefit evaluation analysis of scenarios by I&APs through multi- Step 7: ?t'e6eai 'on ofsun awry inform Ionen f recoma endation ofa dues configuration sceteardoto the Miaisles or herd kgared authoriqy Complete summary template for presentation to Minister or her delegated authority + Figure 5.5. The proposed seven-step National Water Resource Classification System (OWAF 2005).Decision on aMC ofThe resourcerequirementinvolveswater first stepand predicting - socio-economicaquaticof will the be NWRCS howecosystem met these using involves relationships. values rule-basedgoods, describing change services or underother both and differentmodels household attributes basedscenarios. (atfor onathe community a current general situation. understandinglevel) and The sectoral fifth of stepnatural use Such models would be strengthened as more information is lt is envisaged that this predictive accumulated over time though research and the use of the NWRCS. 36 6. WATER RESOURCE PLANNING Alan Carter and Jane Turpie 6.1. 6.1.1. Introduction The role of local government in environmental management naturalAsand such, also environment havelocal governmenta direct and role estuaries, isto inplay a position in and the thefacilitation to facilitationplay a significantand of management planning andLocal pro-activeand ofgovernment development private role development in is the atprocesses the protection forefront initiatives. that of of arethe the implementation of government's development initiatives tremendousenvironmentalenvironmentally pressure sustainability.sustainable. on the natural The pressure environment. for development According to thatLocal environmental exists government in South policy operatesAfrica papers, can thein impose a most challenging set of circumstances in terms of ensuring interventionnaturaldevelopmentwellsignificant as environment increased impacts at is local fast include pollution levelbecominghave in toari local be increasedand abalanced government'scritical waste demandimperative. withgeneration. theplanning for protection naturalThe Thisand pressure resources, managementmeansof the forenvironment, that development such environmentallyprocesses. as land, which and water may its and impact sustainablerequire energy on direct theas implementationdevelopmentenvironmentalLocal government processes. isprinciples aligned has to withLocal ensureset environmentalout government thatin policy environmental andalsomanagement legislationhas toconsiderations be measures aware areLocal adhered of thatgovernment'sand are are ensuretotaken preparedin all into that of role accountits it'sby inplanning otherplanning terms and spheres of and thatandthe natural environment dimension entails different aspects. partcircumstance,changestheof government, projectof spatial or level development and municipalities such environmental other as planningEnvironmental applications may initiatives.impact also be Implementation assessments involved in strategic may Plans be andenvironmental required Environmental in the assessment case Management of certain processes landPlans. use as At for environmentally sensitive areas. Depending on local resources.level, that theyHowever, have therea key isrole confusion to6.1.2. play inconcerning promoting the the roles management andSince responsibilities local and governmentappropriate of local hasusegovernment theof estuarine most and direct relationship with communities and issues at the groundConservation and sustainable use of Eastern Cape estuaries wereopportunitiescivil society made relevant with are regardintegrated to integrating to estuary into the estuarine managementIntegrated values Development and into particularly the lOP Planning process:Following how (IDP) estuary from process valuesthe issues(Breen and identifiedetdevelopment aL 2004). in Breen et aI. (2004), the following specific recommendations National/provincialgovernanceIDPrespectDefine, departments todelegate estuaries and management andwithin departmentsnot formalise locatedcoastal of within themunicipalities estuariesto providerole protected of at municipalities municipalities municipal act areas. as Centres level. in with promoting responsible strategic co-operative guidance for promoting with governance regard co-operative to withlocal estuary management. 37 EstuaryAdoptFocusEstablishIDP department/Centre.morea ManagementRapid formalized effort Assessment at Estuarythe Forums local ManagementMatrixlevel to develop to approach stimulate and Forums implement participationto facilitate with roles strategies co-operationin and estuary responsibilities for management. managing between agreed the municipalities consumptive upon with andtheuse proceduresDevelopof Incorporateestuary a resources. nationalas monitoringsoon rehabilitation asstrategy possible. protocol forprotocol the into conservation the into procedures the procedures of usedestuary by used municipalitiesbiodiversity by municipalities and to monitor incorporate when IDP progress analysisinto IDP in managementFinally,andMunicipalplanning coordinates that indicates IDP a intosecond departments activities thethe IDPphaseneed withprocess for actingof Estuaryrehabilitation.the andestuariesas Centres Managementbuild thisprogramme that capacity promote Forums. bein selectedinitiatedthe dissemination specificallycase studies. of to data incorporate and information estuary chapterincorporateimplementing attempts important someto answer or environmental all the of thefollowing above considerations, two recommendations. questions: this is notAn always understanding easy in practice. of the Thus, IDP processthe current is necessary before developing plans or initiatives for While the IDP process theoretically should available opportunities and challenges for incorporating estuary valuesThe discussion into the IDP below process.How provides candoes estuary the aIDP brief values process overview be affecttaken of andtheinto lOPhowaccount processcan init bethe andaffected IDP attempts process? by estuaries? to identify the 6.2. 6.2.1. The Integrated Development Planning processAn overview of the IDP process andsupercedesintegrated Local Municipalities) development all other plans have plans that to guide(lOPs). undertake development As the an IDPintegrated at is local a legislative governmentdevelopmentAccording requirement level. toplanning the Municipal it has process a legal Systems to statusproduce Act and (MSA) all municipalities (i.e. Metros, District Municipalities andalsoplanning,roles thesupposed and private budgeting,responsibilities. tosector guide management within the ltactivities theis the municipal andprincipal of otherdecision-making area. strategicspheres ofplanning government,in a municipalityThe instrument IDP corporate process for which a five serviceis guides oneyear of providers,period. theand key informs IDPs toolsNGOs are all for local governments to cope with their developmental Theapproximatelyinvolvement IDP is reviewed of 6 a- 9numberannually months ofwhich to stakeholders. complete results anin theIDP Because amendment which isof closely its of participatory the relatedIntegrated plan should to thenature development itmunicipal be it deemed takes budgeting planninga necessary. municipality cycle. is a very interactive and participatory process which requires implementationbudgetprojectsissues/problems, (i.e. to addressallocation of whichprojects the of determine issues.internal and hence Aor veryits external developmentvision, critical fundingobjectives phase is directedto of theand the identified strategies IDPbyIntegrated the is IDP.to projects) followedlink The planning basic as by this thecycle to willidentification the and ensure municipal linkages that of Development Planning is about the municipality identifying its priority are shown in Figure 7.1. 38 Ctiø(1 DevelopmentSu,tainableMunicipal : Environment J, Local EcoDevelo : ParthertiApproach IDP Moïi1Wand Eva'uation ImplementationMana

Figure 6.1. Schematic of the Integrated Development Planning Process (From IDP Methodology Guide Pack) 6.2.2. The IDP process follows a strategic planning approach, which implies making the best use ofStrategic Approach limited resources consideringtakingaddressingfocusing theprioritising given given analysis conditions root resourceson causesa ratherfew and crucial andofthan policy problems, relevant wastingissues guidelines. rather rathercontextresources ltthan thanincludes: into dealingfor only account collection symptoms in a comprehensive of useless information manner with all issues appropriateresources, betweenforum and departments, systematicidentifying manner population andof dealing analysinggroups with and givenalternative locations.Prioritising, challenges. strategic focusing options and making choices require debate on the distribution and allocation of scarce The IDP tries to provide an deadlocksacceptableresolving process. which solutions delay By providingwithinthe delivery given a systematicof time-periods, services. and transparentthereby overcomingThe decision-making IDP approach, many of process, the by decision-makingbeing it will a strategichelp find planning approach, can also be seen as a conflict- 39 have their own planning requirements,6.2.3. some of which are definedSector by agencieslegislation within (Table a municipality, 7.1). The IDP as well as those belonging to other spheres of government,IDP and Sectoral Planning Thisissues)suchinapproach the means planningIDP and is process. supposedthatwhere requirements there aAs sector willto a beresult, be aligned (orvarying relate sectoralpart to toofdegrees these cross-cuttingit) planning is sectoralrelated of overlap, requirements toplanning ¡ssues priority depending (e.g.requirements issues will spatialbe on identified met the planning bycoincidenceso thethat during IDP they and process thearebetween environmental lOPincorporated wherever process. sectoral planning requirements and a municipality's priorities. Category of requirement Table 6.1. Requirements for municiDalities to undertake nlannina under national sector leqislation Sector requirement - Requirement forfor a sector distinct planning plan to be SpatialIntegratedWater Service Development WasteTransport Development Management PlanFramework Plan Plan Housing strategies and targets Requirementincorporated intothat IDPIDP complies NEMAIntegratedLEDCoastal strategies principles, management infrastructure DFA issuesprinciples, planning ElPs and EMPs Value adding contribution The MSA also states that development strategies must be aligned with national or provincial Local Agenda 21 healthsupportprocessmustsectoral be etc. municipal plansadoptedis howhave and to traditionallywhichdevelopment. planningachieve links, requirements.alignment integratesbeen institutionalized or and integration coordinates between plans. the A keydifferent concern development with respect sectors to the IDPthat Development sectors such as water, sanitation, waste management, lt also establishes that a single, inclusive and strategic plan (e.g. water and sanitation department, waste management department, health department,6.2.4. etc) and addressed through separate line functions. Alignment with national policy guidelines and principles in IDP spatialandare relevanta safe development and to localhealthy governance.principles environment. that Integral are The relevant toDevelopment these to environmentalpolicies Facilitation is environmentallyThe management WhiteAct (DFA) Paper sustainable providessuch for Local as compactfurther Governmentdevelopment specific towns (WPLG) provides guidance on those national policies that soundnessintegratedand cities instead planning,and sustainability: of urban the sprawl.IDP Guide Pack suggests the followingWith respect with respect to considering to environmental national development policy guidelines and principles in municipal AssessingMakinginInvolvementIdentification the public surealternative participation thatofof competentenvironmental major strategies environmental process stakeholders by degradation considering problems and/or and their resourcerisks and environmental threatsduring persons theare IDPreflected impact in analysis.charge in ofthe environmental objectives concerns Considering environmental aspects when designing project proposals. 40 development planning requires involvement6.2.5. of all three spheres ofMunicipalities government. areSome responsible contributions for alsothe preparation and adoption of lDPs. However, integratedThe roles and responsibilities of different spheres of government haveIDP. to be made by provincial and national government to assistAt municipal the local planning.level,In the local, district and metro municipalitiesaddition, each have to prepare and adopt an district municipalities have to provide support to poorly capacitated local hasbetweenmunicipalities an important local municipalitiesand financing, facilitate guidingtheand compilation the and district. co-ordination of a framework role, ensuring whichAt the will alignment provincial ensure coordinationbetween level, the municipalities provincial and alignment Department and of Local Government monitors the process and relatedcontributewith sectors. policy their and expertise, legislation, policies IDP and guidelines, information. financial assistance,At a national a national level, training the Department framework, of andProvincial and Local Government is responsible for ltIDP- also co-ordinates training. Sector Departments (e.g. DEAET in the Eastern Cape) allocationestablishmentDepartments of resources ofe.g. a PlanningDEAT, at the DWAF) local and level.Implementation contribute relevant Management informationIn Supportand turn expertise. the System Sector Departments(PIMSS). The (provincial Sector and national) are guided by the municipal IDPs in the responsible, at the same time, these6.2.6. respective activities and the Whilecorresponding each sphere plans ofneed government to be aligned is responsible for the planning of activities for which itAlignment with other spheres of government is andplanningto one standards. another. needs to be informed by and aligned with national and Similarly,provincial the policies, Municipal principles, Systems strategies Act of 2000 (MSA) indicates that planning at the municipal level The White Paper on Local Government indicates explicitly that local government organsforhowmunicipalitiesmust this, this be of andalignment alignedstate. must and with,adjust relevantis to beand its achieved.provincial plancompliment, if it isTheand not IDPnational thealigned Guide development organswith Pack the ofsuggests development state. plans However, thatand the strategiesplans municipality the and MSA strategiesof does other is responsible not affected of specify other representativesparticipation of from other spheres6.2.7. of government, sector specialists,The IDP Approach and other is based resource on thepersons. principle of inclusive and representative consultation and/orConsultative/Participatoryall Approach residents, communities and stakeholders within a municipality, as well as exceptionForumHowever, as rather thedirect majorthan participation the organisational rule. of residents body, and and with community provision ofmembersThe adequate approach through time used for public the is representativesbased meetings on institutionalised is the to participation with an IDP Representative 41 Forum.consult with their communities or their membership before discussing the issue in the IDP Representative specificPhase.exclusively Thisprojects, appliedwould and provide during for public opportunitythe commentassessment for on public theand draft debateprioritisation IDP. on ways ofParticipation needsof solving or problemsproblems, and consultation duringfor consultation the Analysisshould on occur during all phases (see below), rather than being 6.2.8. A district municipality is responsible for integrated development planning for the district municipalityRoles and responsibilities of district and local municipalities to mustinofasbe the aapplied whole,be areadistrict included andof including municipality.the the districtin approach the a frameworkdistrict municipality. This to IDPbeframework adoptedfor and Theintegrated local districtbindsin IDPsrespect bothdevelopment IDP and of theframework thatthose district require matters.plans municipalitymust, alignment, of allinter local a/ia, and and municipalities identifythe specify local all themunicipalities matters in principles the area that first,andbetween leaving establish Districts it to a the framework and Districts Local planMunicipalitiesto produce as a basis an in amalgamated forthe local IDP process.level andplanning? ShouldThere consolidated Orhasthe shouldDistricts always plan the goonbeen local aheadthe somebasislevel with goofconfusion planning localahead about the distribution of roles and responsibilities responsibilitiesmunicipalities,mainlyrelationships.plans? Theexpected demarcation for to the cater same process for areas those hasof areas jurisdiction resulted not covered inrequires a fundamental by cooperation Local Municipalities.change in the in IDP the process. distribution of roles and Previously,Districts the roles of both levels were not strongly interrelated and the Districts were are responsible for the same areas as Local Municipalities. Now with wall-to-wall Sharing consideration:designIngovernment order ofto thisavoid have interrelation duplicationto elaborate ofand IDPs work, distribution as the a crucial two planning ofpart responsibilities and processes tool Accordingof their shouldhas management to bethetake closely Municipal four and imperativesinterrelated. delivery Structures system. Theinto Act and the Municipal Systems Act, both tiers of local Theclosepotentialprocess, analysis to the needsinvolving and residents. prioritisationmust local be location-specific.communities of needs and and Thisproblems stakeholders. has to needs be done Information to be by doneLocal through onMunicipalities, service a participatory gaps which and areon governmentinformplanningLocal Municipalities municipal documents entities budgets and withinif IDP District and isthe to businessMunicipalitiesdistrict contribute will plans. notto need institutional be Therefore, sufficienttheir own transformation one toplanning make district-level IDPprocesses anand effectiveplan if and for their all tool localown for it is meant to Thereinvolvementalldevelopment local are municipalities, strategic oflocal sector government.planning andspecialists which and decision-makingneed from high provincial level facilitation level. processes Therefore, and which professional the are elaboration of skills,similar as ofnature well strategies as for the LocalSmoothonmay District be and bettercoordination level.District-level done jointly between planning by all adjacent Local should Municipalities, belocal done municipalities parallel together and and withinform between Districts one another localand provincialand rather district than officers level. in a one-sided bottom-up or top-down manner. 42 6.2.9. The IDP phases theandagenciesis support provided which inof is in charge theapproved Appendix municipal of implementation by A. the administration,The Municipal final outcome of Council. programmes the of municipal the process and residents, projects willThe hopefully withinIDP the methodologydistrict the be municipalan council IDP documentconsists andarea all of of relevantjunsdiction which five phases has (Table 7.2). More detailed information on the phases 1.Phase Analysis Table 6.2. The five phases of the IDP process, with a brief summary of the purpose and process involvedIdentifyPurpose for priority needs and problems, each ohase. Data-basedProcess analysis of service standards/gaps, 2. Strategies wayEnsuredynamicsunderstand to tackle broad influencing priority intersectoral issues, development debatethat are on available resources and strategies;Formulationetc.depthparticipatory analysis problemof - vision,dynamics, analysis/issue development causal factors, prioritization, objectives resources, and in- 3. Projects planningEnsureeffectiveappropriate, process detailed, innovative concrete and project cost- agenciesdefiningDesignProject identificationand targetand specification budget group, of projects for implementation, location, timing, responsible 5.4. ApprovalIntegration Ensurerequirements;resourcemunicipal thatthat all projects harmonise stakeholders, are projects in lineincluding with framework objectives, and strategies, legal MatchingPresentationIDPRevisionForum; is submittedand by alignment Project to Taskthe with municipal Teams municipality council for approval; of proposals to lOP Representative adoptedbeenother ablespheres to comment of government, before IDP have is incorporated.compliescontributethe area,council thewith toassesses extent addressing legal torequirements; whetherwhich these, strategies it identifies and Public ensuresand the commentprojects issues that will isof it

43 This6.3. has changed, however, with the demarcation of the municipalitiesLand use and planning introduction used ofto Spatial thebe aMunicipal relatively Planning ad hoc process requirements that took place at various spatial scales. Systemsprocess.planning Act which and theemerges subsequent from the Land Spatial Use Act.Development Now previous Frameworks,Land-use efforts will planningwhich be superseded are a product by landof the use IDP is now an integral part of the development planning process, and all worthyandpatternsmunicipalitiesIntegrated safeguardingareas. of land Development are use, requiredthe directionsenvironment toPlans draw of (IDPs). ingrowth,up terms Spatial These urbanof Developmentthe SDFs Constitutionedges, will special provide Frameworks and development indicativeNEMA. (SDFs) Thus plans, areas insteadwhich that and are showof conservationfollowingallied the to desired their the In drawing up these plans, municipalities will be obliged to consider sustainability issues bioregionalnationaldevelopmentareassomewhat of andthe ad planning4. country. provincialhocplanning process In conducted strategiesaddition, of the past, it atmayon broaderit socio-economic is soon envisaged becomescales, that asa legal development,land-usethey requirement will planningbe obliged sustainable for will localto ultimately align level development these planning encompass plans to withandtake all Moreover, planning at the municipal level will be integrated with spatial and publicprerequisiteregional investment conservation for sustairiability. should planning be made, initiatives to local land-useinto account. planning and'Spatial the administration planning' can of mean zoning a andnumber other of things, ranging from government decisions on where Indeed, conservation of biodiversity is a 2001):followingregulatory definitions mechanisms. are given lt encompasses by the White Paper'town andon Spatial regional Planning planning' and and Land 'land-use Use Management planning'.Spatial (DLA The planning: "planning of the way in which different activities, land uses and buildings are Land-usepolitical,andlocated the inwayinfrastructural planning:relation in which to planning eachspatial and environmentalother, considerations of human in terms activity considerations. of influence distance to ensure andbetween arethat influenced landthem, is proximityput by to economic, the to optimal each social, other use, integrated approach to planning (DLA 2001). The White Paper wasMore developed recently, followingthe term the'development realisationtakingeconomic into planning' account and environmental the has different been concerns.favoured effects that as land-usesrepresenting can ahave more in relation to social, political, Act.includespheresthatDevelopment there integration and must sectors Planningbe asintegration (DLAwell are as 2001). governedsustainability, between by the the equality various legislation and planning ofefficiency. the processesLand Use Act and and institutions the Municipal of different Systems Indeed, the principles underlying the current planning framework The spatial aspects of Integrated wholelargeculture or enough several and history". tonested maintain A ecosystems bioregion the integrity is andidentified of which the plantby can local beand characterised(human) animal communities,communities, by4According its Iandforms, butgovernments small to thevegetation enough Biodiversity and for scientists. cover, local Bill, peoplehuman a It bioregion must to thinkbe is a specified "geographic area of any scale that contains to whichmanagementof it as the home. plan of Furthermore,relates". its biodiversity, a bioregional and be aimed plan at must ensuring amongst the long other term conditions, survival incontain nature measures of the species for the or effectiveecosystem 44 The new laws pertaining to spatial planning are based on the premise that (1) local government management'.andmanagementActforms forms'development the most the and Thesekeyimportant land planningcontrol' two development sphere elements instrument. for functiondecisionhave to The be ofmaking, local effectively two government keyand elements (2)linked the traditionallyIDPif planning of required the spatial isknown byto bethe planning,as successful. Municipal 'forward land planning'Systems use are now termed 'integrated development planning', and 'land IN the use regulationwellUnderplanningpast, as the the setting tooklatter of:new place. limitssystem,was performedto typesland use of by development.management local government, willLand include use through management encouraging building bydesiredregulations municipalities types (zoning), of development will thus before include anyas This meant that planning had limited impact on actual patterns of development. SubdivisionFacilitationUpgradingDevelopmentRezoning; or informalof consolidation landof previously development settlements; of undeveloped land; e.g.and through land; public-private partnerships. frameworkthe part of municipalities. (SDF)', showing desired patterns of land use, directionsTheEvery last is municipalityof the growth, main departure urban is required edges, from earliertospecial produce ways ofan doing indicative things, plan, requiring called proactive a 'spatial participation development on (LUMS)andtomanagementdevelopment each the erfisscheme binding. in areassystemthe has municipality. and to(LIJMS)' conformconservation-worthy recordingThe to theplan plan. shouldthe Thelandareas. be plan use flexible (SDF)and development enough is a guide to accommodate to rights development, and restrictions changing and the applicable priorities, scheme lt must also produce a scheme, called a 'land use Each municipality's spatial developmentaguidelines policycapital for expenditure frameworkfor land land use use and has frameworkmanagement; development; to have showing four components: where the municipality intends spending its capital The SDF has to produce guidelinesdirectionsabudget; strategicregarding and of environmental thegrowth; following: assessment. discouraged;areasconservationspecialmajor movementin development which ofand particular both routes; theareas builttypes for and targetedof landnatural use management environment; should be encouragedto redress past and imbalances; others todevelopment deal specifically applications, with natural providing resources clear andarguments management as to the issues, approachlt land rightstaken. and In rural tenure areas arrangements.is it areaswillnot havesupposed in which the to intensitybe comprehensive of land development but should could guide be either decision increased makers or reduced. in respect of cooperativeformunicipality,parcelThe the land ofprivate land,use governance. and sectormanagement can its be complexity. and range for allsystemfrom spheres Once simple (LUMS), the of to spatialgovernment. very which developmentcomplex, sets lt will out depending thus developmentframework be a oncentral theis approvedrights urban-ruralelement applicable itin will thenature be system tobinding ofeach the of 45 6.4. Provision for incorporating the environment ¡n IDP and the Indeed estuaries are particularly6.4.1. cross-cutting, currentgiven their linkagesrealityEnvironmental with entire issues catchment are cross-cutting, areas and the which means that they have to be addressed in IDP.Provisions theirresolvedareresponsibilityinshore spatial thus manne explicitlyand/or development for environment.avoided. ElAs, required in Thisframeworks,theory to Municipalities isconsider doneto help in forming environmental resolvethe mustform partenvironmental of:incorporate of issues their lDPs,a and strategicand indicate andplanning environmentalthat how conflictsthey negative now (DLA assessmentalso impacts 2001). take thewill lDPs into be s Environmental ImplementationPhase),Strategic and Environmental Plans (Strategy Assessments Phase) and/or State of the Environment Reports (Analysis 6.4.2. Most Eastern Cape municipalities are well underway in the development planning process.Capacity havealsoHowever, affects no such there the arrangement. capacityis presently for considerationsomewhat limited of the capacity estuaries. in the environmentalWhile some municipalities sphere (Appendix have B),dedicated which environmental management units or officers, others Capacity is particularly lacking among some of the smaller local Thus,identifyingGreatormunicipalities. knowledge to Keisome IDP).environmental extent, or Local Environmentaldo not themunicipal appreciate onusissues. is IDPs(and on the the aretherefore significance district often preparedestuanne) municipalities of environmental by issues Planners to areensure issuestypicallywith that little and localconsidered or values no municipalities environmental of estuariesa low priority. are (e.g.input Amatole,guidancecapacity District or and resources resourcesMunicipalities should to meet generallybe abletheir toenvironmental do look not to have district, dedicated planning provincial environmentalIndeed,obligations. and nationallocal The municipalities departments, spheresproblem ofis governmentthat, areand supposed apartsupport from for to receive support in this regard. Municipalities that lack fora(DEAET), local Coastal municipalities hasManager a Provincial hasis limited. recently Coastal been Committee, appointed. although The National attendanceAt Department a provincial by municipal of level Environmental officials the Eastern is sporadic, Affairs Cape Departmentand of Economic Affairs, Environment and Tourism Tourism (DEAD provides ongoing6.4.3. support to DEAET, but limited support at the municipal level. Progress and challenges accommodateThisSDFs. has been ¡t. because it The development ofIn lDPsmost is cases well underintegration way, butof natural relatively environment few municipalities into the haveIDPs completedhas been somewhat their superficial.Both of these problems urgently need to be addressed. is considered irrelevant or because planners have not known how to It is also important to note that the problem is at the scale of the environment in general, of which estuaries form just a small part. 46 theIntegrating fact that estuary much conservationwork is still to into be these done plans in completing thus presents municipal an even SDFs greater provides challenge. an opportunity Nevertheless, to severalEnvironmentalintegrate municipalities environmental Assessments areissues taking that that are intohave meant account so farto identify only the beenfindings significant given of lip-service the Aenvironmental start Subtropical has in thebeen and IDPs.Thicket made estuarine Environmentalwith issues the preparation and of State of the Environment reports or Strategic CacaduCityPlanning Municipality. DM)project and (STEP) However many in local the there compilationmunicipalities are still some of their (e.g. coastal Spatial Great District Development Kei, Mbashe, MunicipalitiesIn the Eastern Frameworks. Nqushwa, (e.g.Cape, ORetc.) SoERs Tambo that have DM beennot.and completed for Amatole District Municipality and Buffalo incorporatedAmatoleEnvironmental District into Implementation Municipality IDP in the Eastern and Plans Buffalo Cape (output City municipalities, Municipality.of the strategy and phase the Theimplications of followingIDP) have for are alsoestuaries. some been examples completed of for the way in which environmental considerations have been TheAmatole ADM District State of Municipality Environment (ADM) Report indicates that there are 98 estuarine systems in the district. comingsystems,The challenges out water of the quality,facing State estuaries siltation, of the Environment overinclude utilization pressure Report of fromresources and development, Environmental etc.ADM appointed lack Implementation of good a dedicated scientific Plan, informationEnvironmental which was on Manager in January 2004 based on recommendations environmentalReportcompleted in the in country.May input 2003. is provided ADM was on one ADM of projectsthe first (if(housing, not the first)sanitation,The DM appointment to waterproduce etc.). a ofState an Environmental of Environment Manager has been a vast improvement where important The environmental itsrecentlyManagementthemanager's commitment area come that position Programmeoutare to meeting forrelevant has comment. also its(CZMP) to recentlylegislated estuanne Again, and facilitated thisobligations Environmental management. achievement the in initiation ternis Managementis aof significantand environmental completion Plan/System milestone management. of two for important (EMP/S)the DM and havestudies reflects also in Recent drafts of the ADM Coastal Zone objectives,Environmenthas adopted strategies isa groupedcluster and approach, with projects Local that whereEconomic are relevantpriority Development issuesto estuaries are (LED). clustered(TableThe Therecently 7.3). IDP within containsrevised four strategicIDP several Report priorities, clusters. (2004/2005) indicates that in order to facilitate integration, ADM 47 Table 6.3. Environmental management priorities, objectives and strategies in the AmatoleDistrict Municioalitv IDP that are relevant to estuarine manaqement Funded projects SystemManagementEnvironmentalPriority area environmentalDistrict wide management coordination of Objective ManagementImplementDevelop an System/Plan/Manualenvironmental environmental programmes Strategy implementlineDevelop with an1S014001and EMS in relevantestuaries to regardinginstitutionalEnhance ADMenvironmental capacity and LM andEstablishDMDesignatedUpdate projects and SoERLM Environmental environmentallevels Management officers at utilizationPromotemanagement sustainable of renewable sustainableImplementcapacityPromoteForum andcommunityutilization projects awareness ofthat environmental renewable promote ManagementCoastal Zone thevegetationManagePreserveresources Coastal of coastlineZonethe the natural ADM in ternis of CoastalDevelopEradicateresources zone and alien implementprogrammes vegetation CZMP indeveloped ADM implementDevelop and an ICZMP Management Bill by LMs projectsImplementplanscoastalDevelop for management municipalall pilot LMs protectionBiodiversityresourceRenewable use biodiversityPromoteresourcesutilization sustainableprotection of renewable of biodiversityLobbyrenewablepromoteDevelop to sustainableandprotect resources implement areas utilization of projects high of that LegislationPollution legislationComplianceenvironmentPromote and with unpolluted SA representativescapacityComply with of community legislation environmentalby building legalestuarinepositive obligation developments, issues to associated provide ADM support withfaces the to significant poorlysmaller capacitated and challenges less capacitated local in managing municipalities.Although LMs particularly within the The appointmentits challengesjurisdiction. the environmental of include: ADMan environmental has and a manager and the completion of various reports are ADMExtensiveLacksuchEstuarine has ofas to capacitypoverty dealissuesareas with alleviation,need andmay environmental skills notto be getrelating provisioncovered the attention issuesspecifically by of onehousing, associated required person. relating sanitation where with to estuarine its otherservices, own competing roles issues. etc. and responsibilities,problems are more activities urgent, notTheaddressed.Publicand being projects,legal and adequatelyobligations municipal let a/one adhered awarenessofthose the municipalityof to LM5. or concerning enforced. and privateenvironmental landowners and estuannein ternis of threats policy areand not legislation adequately are 48 BCMBuffalo has City 11 Municipalityestuaries within (BCM) its jurisdiction which are under threat from development and in the function2001case and of that thoseappointed reports located directly an closeEnvironmental to tothe urban IDP Managercentres, Manager water and to headthe quality City the isManager Unit. a problem.The The Municipalityon Unit certain is designated projects. established as a an"strategic" Integrated Environmental and Sustainable Development Unit in a number of projects have beenThe fundedissues IEMP and have Unit initiated, been provided on including: the considerable IDP agendaEnvironmental inputfor some into issues time.the first have IDP been report, integral so environmental to the IDP process management right from the outset, and out of which A draftSDFPlanCurrently Statehas included completingof theEnvironment Coastal environmental Integrated Zone Report Report input Environmentalhas beenhas been completed completed Management Plan and Coastal Zone Management process,(Table 7.4). challenges Some relevant relate projects mostly have to integration been funded of andenvironmental initiated.WhileThe IDP environmental andcontains estuanne several and values priorities, estuarine into objectives, other issues receive strategies appropriate and projects consideration that are relevant in the to BCM estuaries IDP operational functions. ThereoutsideVariousHowever, is the operationalsignificant municipality. projects pressure departmentsare being for planned development such asin isolationengineering along of estuariesother are requiredimportant and clearto stakeholders provide spatial various planning both services. within policy and Theaddressed.PublicPositionsguidelines legal and obligations taken are municipal needed on environmentalof awarenessthe to control municipality development concerningissues and are private seen environmentalin environmentally bylandowners some as and obstructingin sensitive estuanneterms of areas.economicpolicy threats and are progress. legislation not adequately are environmentalRezoningalleviation,Environmentalnot being adequately provisionand consideration. issues other of adhered arelandhousing, competing use to sanitation orchange enforced. with applications services,problems etc. that are are being deemed approved more urgent, without such appropriate as poverty

49 : Table 6.4. Environmental management priorities, objectives and strategies in the Buffalo City MuniciDalitv IDP that are relevant to estuarine manaqement theHigh water pollution levels inIP1Lssue 5andImproved management water quality je yearsScientificObtain ServicesSABS accreditation Laboratory forwithin the 4 trateges estunes:Funded;inPartial 2005/6 funding provideEnvironmentalLack effectiveof capacity to Amonitoring structurednationalEstablish programmestandards andand implementwell-functioning in compliance a Water Quality with SpatialManagementPollution fragmentation Control and andA well sustainable structured, city efficient pen-urbanManagewell-trainedinstitutional land and staff. use framework, rural sustainability areas with sufficientin urban, and All initiativesSOF have developmentUncoordinated spatial practicesco-ordinatedsustainableEnvironmentally and sectoral spatially environmentalImplement the management principles of (IEM) integrated environmentalinformedalsoinputhad be and bywill themanagementUnsustainable environment and by use of withinsustainableA safe, the healthy BCM environment and (EMP)EnvironmentalFormulation and Management adoption of anProgramme Integrated 2004FundedCZMPIEMP and in water,Highdifferent pollution soil stakeholders and levels air in qualityImproved and air land and pollution water WaterEstablish Quality and monitoring implement programme a Land and in inPartial 2005/6 funding provideLackEnvironmental of capacityeffective to watereffectiveAmanagement comprehensive, quality and acceptablemonitoring authoritiespermitcompliance conditions with national set by regulatory standards and andservices.ManagementNegativePollution health impacts Controlenvironmental and due long-termComprehensivetheprogrammes BCM waste throughout integratedplanning ofFormulation, an Integrated adoption Waste and Management implementation Plan planning),(e.g.wasteto unsustainable lack management of long-term solid servicescollectionappropriateEfficient, in the entire BCM andeffective treatment waste and treatmentInvestigation(IWMP) of waste of alternative uses and 50 quality.mainly to pressure for development, siltation from poor farm practices,Great KeiKei and MunicipalityLocal to aMunicipality limited (GKM) extent, has somewater 14 estuaries within its jurisdiction. Estuanne issues relate withtechnical(SDF)limited an emphasis is environmentalmanager currently on with beingspatial themanagement formulated assistanceissues and for capacity. opportunitiesof GKM various together service along with providers. the a Strategiccoastline.While A there Spatial Environmental is aDevelopment general Assessment awareness Framework (SEA),of the need for environmental conservation, the GKM has very This role is currently largely being carried out by the 2005/6However, GKM they IDP are has not the deemed following to to be say a aboutpriority the against current other state developmentalltof the environment: objectives.is clear The that revised environmentalThe formulation andof IDP's estuanne ¡s of critical issues importance are recognized to coastal managementin the GKM efforts.IDP process. The recognition of powersenvironmentalsystemshascoastal decided and and principles functions assets tomanagement prepare and areis onlyissues notan Environmentalexpecteddegraded.responsibilities in the formulation in June/July Management of District of 2002.these Municipalities Plan. Subsequently,plans is important are the unclear toAmatole ensure and District that the coastal finalisation Municipality features, of In the Amatole IDP (1999 - 2000) ¡t is concluded that the asnaturalinstruments one ofcomponents many (White options and of ourGreenfor coastalcoast. Papers, However, management spatial legislativeThereIn planning this isregard a policies)and range numerousregulatory of are roleplayers relevant instrumentspieces to currently ofmanaging legislation are seeninvolved the (Acts,tohuman be in merely coastalOrdinances and planning and andBills), management policy strategies within andthe management,apparentandeffectivenessGreat administrative Kei Municipality.that of tosignificant theirplay constraints, involvementa greater scope availablerole. existsis highly humanfor variable other resources, stakeholders, and depends level of onnot skill a traditionallyrange and training of factors, involvedand suchpolitical inas coastalfinancialwilL lt is These actors undertake a range of activities, both formally and informally. The The Great Kei Municipal area boasts opportunities for eco-tourism commonageFriend'sspatialdevelopment and of strategicMorgan's inwith a northfeatures components Bay westerly relatedfor an direction. ofextensionto theits culturalIDP This (referofThe andtheproposal Coastalto Capehistorical Table would MorganForest 21). heritage. Associatedenable Reserves Nature the Reserve withestablishmentare notedthis byis asthe rezoning a proposalofdistinct a Biosphere adjacent land by the use of the area to be incorporated into the faunaceremonies,communityReserveDespite and linked re-introduction in tourism the to theformabove activities,streams of of resourceand locally feeding researchthe extinct everutilization into projects,species. increasing the Incartia (grass eco-tourism Estuary.pressurefor building jobA fornumber opportunities,and development craft of benefitsmanufacturing) protection onwould coastal accrue of traditional flora ecosystems, to and the it followingshould be excerpt noted that reflects: environmental concerns were not includedtostrategies the assurvival a and priority ofprojects. Tourism issue However, and in theAgriculture IDPit was as recognised which theThe are IDP thethat backboneprocess effective did Environmentalof notthe highlightmunicipal ManagementEnvironmental Economy. The is issuescritical Great as a priority/key issue in the formulation of projectseffluent,ExamplesmonitoringKei Municipality from burning includeannew environmental oflacksprojects wastethe adequate establishment materialand point existing capacity and of view.exploitation ofoperations cemeteriesto manage of where natural and in flood monitordetrimental resources. plains, the variousdumpingenvironmental activities of hazardous impacts and development wastecan result and lt is anticipated that the District municipality will assist in managedenhanceswhoWith are respect environment theaccountable area to developmentas throughafor tourist this function. fostering destination. strategies, a partnership Strategically, theThe IDP environment withstates thethe themunicipalityDistrict of following: the Municipality Great proposes Kei Municipaland to the achieve Government area a iswell in many respects unique and fragile which 51 Thereconsultants is no dedicatedhave not been environmental obliged to department use the STEP nor informationis this responsibility Generally,in relevant formally decision-makersreports, allocated proposals, to in a plansGKMparticular etc.are not sufficiently aware of environmental issues, although official (this role is being managedtermsTheprovisionOther informally municipality of environmentalproblems of by housing theis seriouslyare technical andawareness.deemed services, under-capacitated manager). to be etc. more urgent from thana manpower environmental, perspective such and as alsopoverty specifically alleviation, in TherePublicguidelinesenvironmentalRezoning is andsignificant aremunicipaland consideration.needed other pressure awareness toland control usefor development concerningchange applications environmental in along environmentally estuaries are and being estuanneandsensitive approved clear areas. threats spatial without are planning not appropriate adequately policy Thenotaddressed. legal being obligations adequately of adheredthe municipality toOther or enforced. district and private and locallandowners municipalities in terms of policy and legislation are lacking.tendlimited, receive if not greatercompletely emphasis lacking. than Other environmental social and poverty related related issues,The environmentaldevelopmental while capacity capacity needsand awareness understandably within other is also DMs and LMs within the Eastern Cape is known to be very providinginvitationsstatusthe specific of spatialestuaries for intention proposals planning in ofthe informing haveguidelines IDP beenprocess. SDFs forinvited coastal Tenders and for spatial areas.Mbhashe have planning. recently LM. However,This been should awarded recent contribute fundingfor Ngqushwa to from elevating the LM DBSA andthe has been allocated to assist LMs in developing SEAs with In both instances, emphasis will be on 6.4.4. There are a number of programmes that are currently assisting municipalities in meeting their legalRelevant ongoing programmes responsibilities in terms of environmental management. Municipal Mentorship Project (MMP) ofrelationnaturalnot councillors, a decision-making environmentto the agency's politicians is bodyperceived other and and functions officials has as beinga dedicatedand is aproving obligations. key function Development to be However, ofa significantthisThe Planningagency, theMMP MMP's challenge butissection. a this non-governmentexperience function The particularly safeguarding isin consideredthe body LMs,education ofthat with the in provides a support service to government agencies. lt is proposals,substantialmunicipalities. planslip-service etc. The being MMP paid has to obliged the environment. consultants to use theThe STEP C.A.P.E., information STEP and in relevant SKEP planning reports, tools are being used by this agency to provide advice to 52 educationlimited resource and training sharing workshops within agencies is seen asand essential these tools to the beingHowever, development misplaced. it was of proposed anThe institutional hosting that these of memory regular tools be made more readily available to municipalities, due to within agencies regarding bioregional programmes. Capacity Building Project for Eastern Cape Land-use Planners and Decision Makers EasternhasBiodiversity initiated Cape Conservationthe Land-use Mainstreaming Planners Unit, theBiodiversity and Development Decision-makers. into Planning Bank of andSouthern Development:The SouthAfrican African and Capacity the National Mazda Building Wildlife Biodiversity Project Fund, for Institute (SANBI), in partnership with the WESSA AssessHandbookIdentify, existing develop and capacityThis Mapbooks); andproject levels distribute aims and in needs appropriatea participative (within theplanning manner selected to:tools agencies); (to supplement the existing STEP (vi)(y) Promote co-operative governance throughplanning consistentFostersEstablishDevelop tools; skills and anduse transfer implementof common and effectiveappropriate collaborativeplanning project tools. situated learning; management, training programmes monitoring and to evaluationenable the mechanisms; meaningful use of municipaldepartments,projectof the project, andbeneficiaries provincial and but relevant the willpoliticians, aim includeNGO is ultimately and environmental municipal CBO to agencies. achieve and consultants provincial a province-wide servicing land-useA number localroll-out planners of pilotand of municipalitiesmunicipal theand programme. decision-makers, government and governmentDirect departments have been targeted for the first year ALocal workshop Government facilitated Biodiversity by the National Network Department Project (SALGA) of Environmental Affairs and Tourism (DEAT) andOctober Actionthe South2004) Plan Africanas (NBSAP) part ofLocal the consultative NationalGovernment Biodiversityprocess. Association Strategy (SALGA), andThe Action was objectives recentlyPlan National of organised this workshop Biodiversity (East were London, Strategy to: PresentconservationauthoritiesDiscuss the National BiodiversityEnvironmental StrategySpatial Management: Assessment, and Action Biodiversity Plan with an emphasis Act (NEM:BA) on priority and implications areas for for local conservation.including limited Identify the way forward. The workshop also identified many challenges to the implementation of the NEM: Biodiversity Act, capacity of local government, and lack of political will to support biodiversity 53 6.5. The IDP process is an excellentConclusion mechanism for promoting structured development within opportunitiesvaluesmunicipalities. may notand However, receive values areduethe adequately attentionto a number and recognised of priority constraints, andstatus addressed environmental neededAlthough in to the ensure environmental and IDP more process. that specifically, associated and estuanne estuarine threats, issues are cross-cutting and in terms of legislation must be municipalitiespreventaddressed this in from thein terms IDP happening. process,of environmental There there arealso management. significant appears tolimitations be a lack in ofEstuarine terms awareness of capacityvalues of thecould and legal awarenessalso obligations fail to bewhich recognised of in the IDP process due to a lack of participation of issuesissues.persons may with fail relevant to achieve and priority appropriate status neededknowledge in order of the for value these Possiblyof issues estuaries to the be most oraddressed estuarine important in management the Inchallenge IDP.addition, with since respect the IDP to estuariesprocess focuses is ensuring on addressingthat estuanne priority issues issues, important estuarine manager.Coastaltheyprocessare brought receive Zonehinges However, into the Management on theappropriate knowledgeable givenIDP process the Programme priorityresource in stakeholders the status constraints, firstrecommended againstplace. raising Thethis other isidentificationthatand notmunicipal eachlobbying practicable. LM challenges.ofonshould environmental these appoint issues a and issuesdedicated to ensure in the coastal IDPthat This responsibility should fall The ADM Integrated initiativesto assistthe DMs LMs that such on contribute coastalas ADM and andto promotingestuanne OR Tambo issues. estuanne DM who values should and appoint managementThere a dedicated should such also district as be MMP, coastalalignment SANBI manager and and coordination between other municipal capacity building forimplicationsNBSAP. this in the for IDP some process district is inand the local State municipalities of Environment and Reporting their developmentRecognition during the planning. ofAnalysis the value Thephase. of main estuaries lt is opening during and their appropriate management could have significant totrade-offshighlightsprioritization.this sensitise process involvedenvironmental IDP Thethat planners Stateissues in the of values,(rangingdevelopment relatingEnvironment including fromto estuarine issueslocalreporting those to that national values ofshould affect estuaries. governmentwould includeestuanne be a identifiedresource health. actors) Ultimately, toeconomics and estuary included values.it componentwill inbe the necessary issues which lt should also elucidate the nature of the

54 7. INTEGRATING ESTUARYMANAGEMENT VALUES INTO PROCESSES PLANNING AND Jane Turpie trajectory7.1. of being increasingly integrated in the sense of consideringWhat is both clear environmental from the precedingIntroduction and socio- chapters is that the different types of planning are all on a developmentconservationrelativelyeconomic new goals. planning. plans, planningprocess What but of intoisalthough Integratedalso account. clear it gives isDevelopment the major need attention to Planningintegrate to the obviously the environment, different aims types to it doesimprove of planning. not theexplicitly integration Indeed, link withthe of Similarly, there is no explicit policy that requires Conservation Planning to take Both planning areas are only poorly linked to water resource fundamentallyareplanning, among despite connectedthe most the fact importantby that the waterconsideration of is these. a prerequisite of environmental for both development values,This chapter and showingand explores conservation. how theseestuary relationships values in a bit more detail, We argue that the elucidation of estuary values can highlighting how they are valuationfundamentally7.2. studies affect should all be planning, carried outland-use in order and to inform management these processes. decisions. The overarching goals of planning and management Finally, we consider how whichManagement.andFor example,embodiesare explicitly these the One goalsincluded goalsexception of are economic as reflected isthe conservation main efficiency, in goalsthe motto ¡nplanning,ecological the of theWhite Nationalwhichsustainability PaperA common is Watergoverned on Spatialand Policy:thread social by Planning asome,theamong equity Biodiversity for almost(Figurearid all, Land foreve?', all 4.1).policy, planning Use and management activities is a policy framework which does not seek to achieve economic efficiency. development Economic equitySocial sustainabilityEcological Figure 7.1. Three pillars upon which most South African policy rests 55 the greatest possible net benefit. This can also be seen as fulfillingThe a goal of economicefficiency development.relates to maximising economic returns to aquatic resources, or achieving themembershuman costsoptimal incurredneeds ofallocation society. for in water water of resourcesand supply aquatic development, in ecosystem terms of theare goods equitabledistributed and services. distribution fairly.The goal SocialSocial of of equitygoals goalscosts includeis areand to also ensurebenefits meeting concerned that among basicthe witheconomic benefits obtained from aquatic ecosystems, and economichealthnational of opportunitiesdevelopment,and resources international in theand and short-biodiversity social promotes and wellbeing long-term. conservation the use of futureof resources obligations generations. inThe assuch well goal a as wayof ensuring sustainability as not anto acceptablecompromise recognises state the the of limits to resources in the light of population growth and Ecological goals include meeting andsimple7.3. management to solve simultaneously. process that requires A number a suitable, of trade-offs integrated therefore analyticalHowever, have and to economic,bedecision-making considered social, inThe system. all political planning relationship and ecological between goals are potentially different conflicting planning and are andnot management environmentFigure 4.2 shouldprovides ideally a schematic fit together. on the way in whichprocesses different Thereplanning is no processes defined wayaffecting in which the estuarine different types of planning are meant to relate to one another. developmentimportantplansplace into at in a action,determining nationalplanning is ultimately ortakes howregional place they carried relatescale,primarily out to atwater oneaat local a another.managementmunicipal scale. While scale. conservationtakeslt should place first at planningbe a noted catchment generallythat different scale takes typesand of planning take place at different spatial scales. This is Management, which translates the orderof information).level,planning to one come requires can up then with defining examine "optimal» some trade-offs plans sort of in(or hierarchy the which light approximatesof of the constraints. goalsEssentially, of efficiency, optimalitySubject some to sustainability inthe typesa constraintsworld of planningof and imperfect at equity, each produce in constraints on other types. Thus linking different types

56 MunicipalityDevelopment Spatial Land use Management Local Plans 'O) DevelopmentIntegratedFramework + Planning >fde-offs between sodo-econom'ì\ tø a)Co Planning that can be allocatedpper limit amountin terms of o water \\That is conserved to different degrees//determinesvalue amount of alternative of additional land land uses wo G) I to development Constraints çc' alternative types of development/Trade-offs between value of EcoC-) Caichment ManagementWater Resource Plan(water Planning, allocation to different sectors and areas) - differentland use types at a of broad developmentdetermines scale overall level of o Water Resource Classificationenvironment and consumptive use) (water al/acaten + between / o çkC valueTrade-offs of water between in aquatic socio-economic ecosystems vs alternative uses Î Bottom lineareas in terms to be ofprotected I Constraints bottomdetermines line is a/located how much to environmentmore than the / and buffer zones Spatially-explicit analysis of \ Conservation Planning opportunity costs of conservation economiccost-minimising benefits vs solution to determine // whereSimilarly, trade-offs environmental are evaluated, valuation constraintsand where is just andestuary one trade-offs, of valuation many buttypes fits is intendedofin. studyThisFigure does thatto concentrate7.2. wouldnot Alist proposed be all needed ofon the the protocol tomost pertinent for how differentaspects. planning processes fit together, and input into the decision processes. 7.4. Defining a hierarchy of constraints alevelsprotecton national other of biodiversity. protectiontypes level, of conservation planning. required,Conservation This defined planning ¡s planning supported in termstends identifies ofto by biodiversitybe South national areas Africa's that targets.or regional.need nationalIn Figure Because to be and protected4.2 mostinternational conservation targets in order are obligations toplanning defined reach the atisto shown to provide the bottom line' in terms of constraints All other types of planning are withrefinementaffected the classification by followingthese conservation of the all proclamationof the targets,country's ofparticularly waterthe National resources once Water they (rivers, ActhaveThe ofwetlands, been 1998.way identified¡n Water estuarieswhich resource spatially.water and resource groundwater)planning planningbegins is carried out is still in a state of development and which determines the proportion of water that will be safeguarded for the environment and basic human 57 butuse).needs the The versus classification water the act amount defines process that its will canown also be'bottom takeallocated cognisanceline' forin terms use ofin of conservationother the minimum purposes targets, state (e.g. of domesticallocating health of orproportionally all agricultural systems, futurefundamentallythroughportionmore wateruse is a thencompulsoryis tostill different protectedallocated at an early licensingsystem areasto stage,different of and process. water with areas users methodologiesallocation ofusing high variousof ecological the still past, planningbeing andimportance. developed the processes allocation The and and remainingfinalisedof water rights resourcesat are'allocatable' this secured stage. for The classification and allocation processes replace the ManagementplaceAreas,Meanwhile at which a catchment Integrated Plans,describe to scale.be Strategicwater devised Water availability Plans by allocation the (ISP5) yet-to-be-formedand demand. have been Most Catchment developed water planning Management for all ofdoes the Agencies.orWater Management will go hand-in-hand with the development of Catchment will in future, take Municipalplanning in Systems South Africa Act which has beenputs the somewhat main responsibility overhauled for in planningrecentWater years allocationin the with hands the ofpromulgation the municipalities, of the will provide one of the main constraints for development planning. Development constraintssupersedesformguidingthrough of the aa Spatial compulsoryfortype most land-use of of Developmentdevelopment the processplanningad hoc land-use to ofbyFramework. be Integrateddetermining carried planning out, Development which development of the areas past. are PlanningConservation planning to be protected. (IDP).is also planning expressed provides spatially additional in the This is translated into detailed land-use plans, and In addition to providing placeadaptiveprocesses. at a management highly localised but scale. is nevertheless constrained by the aforementionedManagement goalsplans and are plans,then guided and takes by the goals set by conservation andDecision-making development withinplanning management structures is enabled by the process of strategic 75. All decisions involve makingEvaluation trade-offs (Figure of trade-offs 4.2). and the role of environmental valuation This is particularly pertinent to biodiversity worthwhile.requirements,decision-making.conservation where any conservation the lack of understanding beyond that is of optional ecosystem and or biodiversity values can lead to distorted Ideally, we need to determine the optimum level of conservationIn general, for society,while there rather are than certain the checks to meet minimum biodiversity conservation will only occur if it is deemed economically weandeconomicminimum sacrifice international level outputthe remainingthat convention?by isputting set outestuaries more in most resources to conservation into conservation planning exercises. ofDecisions estuaries In asotherthan to requiredwhichwords, areasare by wenational to better conserve policy off if involve trading off biodiversity values against the development", or would we derive more social welfare and versustheopportunityresourcesminimum areas the in opportunity costsreserve question.above of therequiredconservation. Similarly, minimumcosts byof decisionsthelaw required These useinvolves of opportunityasin that ordertradingto howadditional to muchoff meetcosts the water.waterobligatory benefitsare the toThe allocatebenefits of conservation amounthaving toof healthiertheofthe conservation environmentbesttargets aquaticalternative is something ofaboveecosystems natural use the of that alternativelocatelocalbetweenneeds scale. conservationto form thebe At consideredbenefits of the development. very zones of local additionalin in Integrated scale,an These estuary. conservationtrade-offs trade-offs Development are mightand also thePlanning. becomemade opportunity in moremanagement specificcosts in decisionsinterms land-use of the such planning most as wherevaluable at a to This involves analysing the trade-offs 58 7.6. Estuaries are recognisedThe as beingimportance one of the mostof estuary valuable habitatsvalues on in earth planning (Costanza et al. activitiesthattheirby1997), the abilitythe economic world'swithis torelatively theirprovide natural value global wellthese ofcapital. value estuariesunderstood. goods amountingYet and isestuaries not Theservices. recognised to economic some are Theincreasingly 12% by root benefits decision-makers,of causethe undertotal generated of valuethis threat problem whereasof by fromecosystem estuaries, activitieslargely that of services liesandthe that damagingin the undermine the provided costs fact comparablebenefitsgenerateinassociated activities associated income, with withbeing theiralternative subsistencecarried with degradation, the outoptions. conservation whichand are other havefrequently andbenefits. negative sustainable overlooked impacts, use by of andusers estuaries limits and thedecision-makers.makes potential these activitiesfor estuaries This directlyresults to Attaching monetary values to actual and potential lead to their more sustainable use.Demonstrate Estuary valuation the high serves value to: associatedValuation with thus estuary provides conservation. important information This is achieved that can by guideshowing the how management of estuaries and Valuationtheyemploymentnationalinternational contribute prioritiesemphasises and community.quantifiable subsistence,for economic the Estuary economicfact and developmentthat conservation fiscal estuaries benefits revenues. and to contributemust households,growth, compete poverty to thewith alleviation national or be shown economyand equityto be and compatibleconsiderations. even the with national income, export earnings, JustifytermbeHighlight costsdemonstrated estuary that the estuaryconservationsignificant both degradation at costsa localas anassociated and economicallycan national have with to scale; all their beneficial of thedegradation. values investment highlighted Valuation and above;land-use studies canoption. show This the can long fundamentallandscape, influencethey have ontended all types to be ofignored planning. in planning and legislation,Understanding often under the values the presumption of estuaries that and the opportunity costs of their conservation has a Because estuaries have a unique position in the fact,tremendousincreasedtheylandscapes, wouldestuaries research be economic taken canand effectively activityas care value, such, of and by andthey be otherunderstanding theirconsidered are plans. positionlikely to to in bein be the recent taken a landscapehub years,into between consideration couldand freshwater, emerging be turned in understanding freshwater,marineto their advantage.and marineterrestrial of their Inand However, the status of estuaries has been elevated by withgeneral.valuescentralterrestrial regard intoto The conservationall account,to positionconservation water resourcesestuaryof planning. estuaries planning. values planning. in themay hydrological endBecause up having no cycle part a also significantof a puts catchment them influence in can a particularly beon allowedland-use strong to planning be position in less in Indeed, estuarine conservation planning hasHence, the potential where to estuarine become conservation planning takes economic doingestuariesofthan bottomthe a so, restD class givenofline of biodiversity the forin the termscatchment.the ramifications rest of importance, itsof futurethe Where for catchment. health,water conservationthis supplywill the By requireD-class inthe theimportance same that limitationrest there oftoken, the ofrequiresis catchment. ifathe watervery estuary astrong requirementshigher sets economic class,the minimum arethis argument toraises be classes met the for for 59 7.7. Incorporating estuary values into integrated conservation and thatreflectsconservation the conservation a failure planning to recognize and has wise tended the use values toof ignorethese of ecosystems. systemseconomicdevelopment provides realitiesFurthermore,Up asandto planningyetnow, development planners unforeseen development may needs. beopportunities failing planning to realise hasfor shown little appreciation of ecological systems, and The former framework,selectingconservationmaysustainable lead areastothen development.the planning it foridentification will different need is Conservationto totypes ofbetake priority taken of factors conservation areasseriously planning such that as managementbyarethat economic development suboptimalfails to take opportunity(Figure from cognizance planners, a4.3). broader costs inof ansocietalintosocio-economic integrated consideration perspective. planning factors in If Opportunity costs Benefits Figure 7.3. Hypothetical coverages of benefits and opportunity costs of different parts of the landscape to be integrated in conservation and development planning. thecountryuseconsiderations entire in their inplanning which catchment into land domain land-use use areas, managementat any planning. as planning well as Thisdoes in scale. the isnot because coastal potentiallyThe economic zone.they affect are valueEstuaries affectedestuaries. of estuaries byprovide land-use an is excellentaffected management byopportunity land over for demonstrating the value of integrating environmental In other words, there is no comer of the Theselandaccount uses affect in consume planning, the functioning more with waterthe ofresult thanestuaries that others, many by lead altering estuaries to more the havesoilquantity erosion, becomeUp and to ornow quality degraded. yield the moreof value freshwater For polluted of example, estuaries returninflows certain hasflows. into not been appreciated, and has thus not been taken into isdownstreamtocontributeestuaries. thuspian afor fundamental to developments areas.peoples' A betterlivelihoods prerequisite in understanding the andcatchment tofor the their ofeconomy areasthe integration impacts whose as a of whole. intobenefits different these are land-uses planning negated ori processes. by the losses value of estuariesvalues in This functioning, in turn, affects the provision of goods and services by estuaries that lt does not make a great deal of sense After all, significantsociety.development opportunities planning should for economic lead to increasing growth, simply economic because welfare theIn demandwithout many incurringcases for these it costswill types be on ofshown any facilities sector that and ofdevelopments enhance an estuary's value and provide opportunities is so high. However, there is also a significant demand for the ecosystem goods, services 60 and attributes that are compromised by these types of developments. The trouble is that the value of the themprovideslatteroverallin terms iscomparable far avalue ofmoresuite the of difficultofestuaries thesewith methods development systems.to demonstrate,that which should allows alternatives. be and developedthese is in values some to differentcasesto be expresseddownright degrees, intangible. inin asuch common a Resourceway currency, that maximizes economics making the Ultimately, it should be possible to establish a balance by7.8. a change in the supply of goods and services provided byThe estuaries. basic aim Valuation of valuation provides isHow to adetermine means valuation of people's can preferences, enhance and howthe theymanagement would be affected of estuaries thoseandquantifying which the relative contribute the benefitsvalue to of estuary thatland people and degradation. resource receive uses from whichestuaries, are compatible theThe costs information associated with estuary provided with conservation their by valuation degradation, versus studies can be used to carry out further economic analyses thewhichalternatives.costsmanagement analysis aim of alternativeto shouldidentify Thedecision analysis bethemanagement able processes.most shouldto productive, describe options Anbe importantsufficiently the sustainableare trade-offs distributed aspect sophisticated and ofinvolved among thisequitable process todifferent in be choosing management able is tostakeholder to assess determinedifferent optionshow groups. management thethe and benefits best Ultimately, inform mix and of uses, and not only all-or-nothing7.8.1. alternatives. Evaluating management alternatives for living resources estuarystakeholderseconomicsconstruct as ecological-economic amodelling sourceof the economicarea highlights for a consequencesfishery. the models ecological with of whichlinkages overexploitation, to andanalyse is aValuation potentially managementor of the of benefits very natural alternatives.powerful of resource preserving tool foruse, partinforming in of conjunction an with ecological understanding, can be used to Ecological- to activities.estuaries, and hence to develop7.8.2. measures that encourage Valuationpeople to also engage helps in to more predict sustainable and understand whyValuation people studiesengage identify in activities the stakeholderswhich are damaging that benefitDesigning from and incentive those that measures bear the costs of theirdissimilarachieve conservation, the to optimalthe preferred and and vice sustainable behaviour versa. This useof individuals, helpsof estuaries. to identify incentives measures arelt more that effective need toin beachieving implementedis increasingly the desired to being realised that wherever the optimal situation for society as a whole is andofthanand/orgoals alternatives. incentive sustainable than reduce regulatory measures damaging practices, measures depend behaviour. which alone.heavily in turn,This on entailsrequires the allocation making a good damagingof understanding ciear property behaviour of rights. the less private profitable costs orand beneficial benefits Estuaries present an interesting challenge in this regard, since they are publicly owned, lt is thus necessary to create incentives to promote conservation 61 7.8.3. Identifying financing mechanisms for conservation opportunitiesestuaries,conservationmagnitude or and who financingfor distribution capturing carry needs.out ofactivitiesadditional costs and which revenues benefits degrade whichassociated estuaries can bewith withoutredistributed Estuaryconservation being conservation, topenalised. efforts, those whoand andThese alsobear the allhighlights thegroups present costs who bear its costs, require funds. Valuation ascertains the lt identifies the stakeholders that benefit freely or at low cost from formspecificallyassociated of 'untapped' withto prevent estuary consumers' or conservation. effect surplus. a change The in understandìng their delivery. Muchof demandValuation of this for willingness studies estuary elicit goods to paythe and maypublic's services be inwillingness the to pay for environmental goods and services, 7.9.Paymentsprovided byfor valuationEcosystem studies Services. can guide the designmanagement of revenue raising tools such asProtocols User Fees and for estimating estuary values for planning and planning are likely to be similar, but7.9.1. may differ from those for waterThe resource protocols planning for estimating or for management. estuary values for the purposes of conservation and developmentValuation for conservation and development planning naturalbroad-brush state versus level, aswhich it will might primarily become beIn more used order heavily to to determine inform developed. conservation whichIn the estuaries case and developmentof conservationwould be left planning andin a largelydevelopment it will be necessary planning, to identify valuation the can types take of place at a relatively valueswithRecognisingvalues consumptivebiodiversity associated and trade-offs that conservation or somewith non-consumptive that catchment of theseare (such relevant values developmentsas use existence in will (such the be region difficultas value subsistence that or toand municipality.put estimate indirectdemands and accurately, recreationaluse These on value), water will it include andvalues), willquantity alsovalues values asbe and wellassociatednecessary associatedquality. as the to economicdecide on datathe most on: appropriate measuresIt towill use. be necessary to classify estuariesSubsistence/commercial in terms of their economic use importanceof estuary resources, based on relevant lt will also be necessaryTourismNon-useIndirect and touse values ascertain property values (e.g.values nursery function for fisheries) and Theinexample costsopportunityand around of on management catchment costcoststhe estuary,of of conservation conservationactivities and of ofestuaries estuaries in interms terms of ofwater foregone entering development the estuary, or based activities for 62 comparedandlargemay appliedbe numbers appropriate with by thoseof experienced estuaries to of develop another. in resourcea relativelyregion oreconomists, rapidmunicipality. assessment especially Nevertheless, methodsThere if the inisfindingsrapid ordera suite methods toof of evaluate one methods should area these arethat be ever developedvaluesinforms to befor the valuation of each of these types of value. However, it DWAF's Classification Project, they7.9.2. will not be dealt with here. Since the protocols for valuation in water resource planning are already under development Valuationby for water resource planning theconcerning estuary. the zonation of the 7.9.3.estuary for different types of use,The and types the of optimal management level of exploitationquestions addressed of in a valuation study would include questionsValuation for management Key questions wouldHowmaximiseIf an include: estuarymuch its utilisationof value isan to estuary be plus developed,of thebait should values and be fishhow to open resourcesother should or users. closed development should to activities be permitted? be sitedsuch aroundas motorboating the estuary or infishing? order to obtainedquestionand the recreational fromwill requiretheir utilisation. opportunitiesunderstanding that the determine value obtained the demand fromThus conserving for valuationutilisation resources studies of the estuary.should versus try theto ascertain value the attributes that contribute to the value of property, The last common sense can provide some7.9.4. simple guidelines as toThere the sorts has ofbeen planning relatively and little management research on the questions posed in the above sections. However,Guidelines for maximising the economic value of estuaries decisions that are likely to maximise the economic value of estuaries: At providelargelyleast 20% natural such of the as state, estuannenursery providing area area function,opportunities within each as biogeographicalwell for maintainingas providing should the opportunities valuable remain services conserved for wilderness that in they a conservationexistsremainsWhereexperience, inestuaries undeveloped, many spiritual needs. South are enrichment developed, preferablyAfrican andestuaries, propertyas research. a nature values and reserve. can would successfully be enhanced combine if one sidedevelopment of the estuary and This is a highly successful model that alsoachievepreventsconsumptiveSince a farthe some oneeasier recreational usestype conservation way whichof usersof limiting valueare utility goalsoften consumptiveof from estuariesincompatible,while impacting not use prohibitingis derived theironthan another's. valuebag consumptive from or can effort multiple be limits.maximised use consumptive altogether. by zonation, Zonation and which non- is It also provides the opportunity to 63 8.1.8. ENHANCING THE VALUEBIODIVERSITY-BASED OF ESTUARIES ENTERPRISE THROUGHIntroduction DEVELOPMENT Nhlanhla Sihlophe incentivespromote biodiversity appear to beconservation applicable and(Emerton, relevant 2000). in different What iscontexts.A apparent range Forof is economic example,that different incentivessome combinations incentives is being are of promoted and applied in different parts of the world to mostapplicationsuitable funding for inapplication the is beingdeveloped in channelled the world. majority to of conservation the world (Lynch, by international 1999),While while a othersdonorsrange oftend (Emerton, international to be more 2000). fundssuitable can for and is being used to finance biodiversity conservation, Other overrisedevelopmentcredits,arrangements to biological great international controversy, rights. resourcesthat are compacts, being especiallyand theused concessions balance towith finance respect of power or biodiversity prospectingto issuesbetween of conservation nationaldevelopedrights, as sovereignty, well nations include as international and debt ownership those relief, of transferable theoffsetsand majority control and lt is worth noting that these arrangements and international donor funds have given donortimes,toincentivesworld promote (ibid). agenciesbe atfor policies, Further, odds conservation play with procedures criticalan localimportant questionsderived conditions. and role from practices have not internationalThe onlybeen observation that in raised shaping are donors. preferredabout localby approachesLeachThis approaches by is the etbecause donoral. to (1997:14) toimplementation agencies,suchcommunity-based funding that and the ofis that policiesperceivedeconomic naturalmay, ofat 2000;conservationWhilethatresource cascade Wood, this management, is 1998).ofdownso, biodiversity economic to affect but also thatlocalincentives inis natural influencingincreasingly for resource conservation domestic under management" severe macroeconomic are threat being confirms in successfully many policy the parts realityand of appliedgovernance theof this world toperception. promote(Belsky, in ways 2000).sector, in reality different categories have particular relevance forThere different are five groups main and categoriesWhile activitiesFor examplein theory (Emerton,of economic bondsit is possible and incentives deposits to apply for are anybiodiversity particularly type of incentiveconservation applicable measure to (Emerton, infrastructural, to any group, residential activity andor conditionsthereareasincentiveindustrial isof high high developments;measures mostly dependence biodiversity, found are inmostand onthewith fiscal the relevantmajority limited harvesting instruments economicworldin developed of- livelihood functionbiological opportunities, contexts. well support resources in formalIn infrastructural isrural the for markets areasmost income commonly where - developmenthence and communities subsistence such applied categories and incentive where-live such in of incentivesofwayconditionsmeasure economic of ensuring for inis developedbeingincentivesbiodiversity community promoted forcontexts conservation biodiversityparticipation and and applied to conservation(Emerton, thosein in biodiversity the prevailing majority 2000). seems conservation. in world Propertythe to majority (Emerton,indicate rights, Evidence world that 2000). aas combinationpointing they And, provide prominent to the of anapplication economic effective among in particular, apply both to vulnerabilitysecurethese, particularly thereby to decreasing perverse in Africa, incentivesis reliance livelihood on that supportbiodiversity encourage (ibid). (ibid). peopleLivelihood to engage support in aims at strengthening livelihoods, diversifying them and making them more lt also aims to provide options that reduce activities that degrade biodiversity. Livelihood support activities can be divided into two broad categories, that is, direct livelihood 64 diversifyscopeand indirect of livelihoods biodiversity livelihood in thebasedincentives. hope activities that as theywhile become indirect more livelihood secure incentives people would attempt rely less to strengthenon biodiversity. and Direct livelihood incentives focus on increasing the efficiency and biodiversityconserveEstablishment biodiversity conservation of local either enterprisesincluding as direct coastalor isindirect one resources, form livelihood of livelihood in incentives particularThis support chapterfor estuaries. conservation. incentives focuses Biodiversity commonlyon biodiversity enterprises applied based to enterprises as incentive measures for promoting Throughoutestuaries,focusandincluding beneficiaries. of this those in particularchapterthis found chapter is inthose on coastal thesethose with and communityenterprises estuary engagement environmentsthat which are strive founded in aretheir ondescribed operation, common in management propertyternis of types,resources and sizes, ownership. such values as While recognizing that varying biodiversity-based enterprises and models exist, the '. . .to reach a symbiosis between nature sustainabilitytoconservation, as Community-Based ofsustainable CBNREs Natural andsocio-economic therefore Resource their developmentEnterprises potential (CBNRE5).to and promote natureThere biodiversity tourism appears (Reid, conservationto be 1999:34)" growing (Bond, are concern referred 2001; among both practitioners and researchers about the inNotably,evidenceandMurombedzi, rural sustainable conditions the of thisnumber 2001; phenomenon CBNREs has Salafsky, of interventionsincreased which etappears aI., overwould 2001).aimed to the becontinually Whileat lastlimited understanding few the (Bovamick years. intentionyield benefitsAlong the andis sustainabilityto this Gupta,support of vein,conservation 2003; thethis of establishment chapterentrepreneurialSalafsky, to the examines et ruralaI., of activityviable2001). poor, the enterprisesustainabilityeconomicCBNREsdeterminants (Figure institutions,system ofof CBNREsthe 1) within sustainabilityhas livelihood been include:which included CBNREs support ofresource CBNREs. to measures,enhance operate.use In governance this understanding asregard well andasa conceptual legitimacy management of the broader andand institutions analyticalsubsidy. socio-ecological Therefore, framework at local level,and the for lt is postulated that the determinants of the withcontributionrelationship a synthesis to between achieving of the differentthese economic, determinants sections ecological, encapsulated and social CBNRE and in the politicalsustainability discussionInitially sustainability. andtheis highlighted conclusionsintention The chapter was in section. relationto isdraw concluded heavilyto their on coastal and estuary based enterprises in carrying out willemergedofinthis particularthis informliterature is thatfrom the estuaries review.the establishmentterrestrially CBNRE However, the basedauthorconcept of estuarydue enterprisehad isto to farthe based draw more dearth experiences. heavilyenterprises. developed of literature from And, terrestriallyin on suchsince CBNREs contexts many based offounded theand CBNREs. lessons valuable on coastal Theare lessons genericpositive resources, have they side caves-coastal8.2. forareas example in various sea partscanoe of (an the ecotounsmworld include: enterprise) ecotounism in Thailand enterprisesCommon transports involvingtypes of tourists canoelinked tovisitsCommunity-Basedservice a number to sacredenterprises of that have Natural been established Resource in estuaries Enterprises and other (CBNRE5) Kuiper,2005),canoesmall islands trailhorse2003). enterprises andwhere hiking they , that trails are is, taken incanoe near on tours pristine tours around by coastal guides the mangrovesenvirons aboard inflatablethat and comprises tours kayaks of the spectacular (Kontogeorgopoulos, tourismestuary (Lewis,trail estuaries, camps et al., and camp sites, and in some cases whale watching activity (Russell and rightswhereconsumptive amongfishing fly-fishingthemselves,quota are operations,issued enterprises to subsistence beekeeping based on and enterprisesnon-timber small-scale forest(Lewis, fishersEnterprises products et who aI., in2005), andbased turn other mayconsumptive on medicinal sellgoods their supplied fishing plants by the estuary and coastal resources include non- found in adjoining forest (Grima, et al., 2003). Although craft enterprises may not be directly associated 65 foundincludecraftwith estuaryproduced in bird estuaries watching,resources, by local have andcommunity totourism diversify it should activities members. in be order realised that to Other establishtake that enterprise place low-impact income in and activities streams aroundecotounsm which thatestuaries enterprisesalsoameliorate take provide place the such a variability atmarket asestuaries those for of sizeestuaryincome of the asflow. itenterprise is Therefore, intended is atdeterminedit isMtentu common estuary. by that many a combination factors. Among of ecotourism others,Nature these activities based include enterprises would the sizetake inof place generalthe naturalat one and estuary enterprises in particular vary. This is because the propertylevelskillsfactorsresource, levelsof also connectednessrights its among includesensitivity arrangements community availability to withimpacts and national members, and communityand size its and of conservationavailability the international cohesion market, of (relationshipssignificance investmentlevel marketing of infrastructural funds (Van of agents, trust, denor investment socialBerg, thedevelopment, size norms,2001). ofpartners, beneficiaries,Further,networks, literacy and these andthe theymembership(Flyman, support 2001; and of groups) mayWood, also 1998). - anbe highlyindication sensitive of the to levelanthropogenic of social capitalSomeimpacts. estuaries that Under exists such are within of circumstances, high a communityconservation the significance because of plant and animal diversity that sensitivetourismestablishedconservationsize of themarket. terrestrial enterprise on significance suchThere ecosystems estuaries areestablished of numerous biological would(Flyman, ori examples diversitybe and 2001; low-impact supported andGujadhur indicating the enterprises sensitivity by and the the Motshubi, application resource of targeting the resource.2001; ofbase thesuch Rozemeijer, highmay Therefore,an income-endapproachbe limited 2001; enterprises in byWood, highlyof the the andproduct1998). the small A that common size is not of thewellthread enterprise. developed that defines contribute enterprises to limiting in such the contexts sizePoor of the infrastructure,is theenterprise. low-impact Because in termsnature itof ofmay access activities take roadsa and telecommunications, coupled with a tourism temporarysupportdevelopsconsiderableit is common reasonably (Wood, employment period that 1998). sizedof ecotourism time to While ecotourismapproximately to develop resources enterprises enterprises, a tourismthirty such start three as product that estuariessmall (33) is, peopleandenterprisesand and toincrease promoteor other more capable associatedin (Lourens,that size productof as providing their 2004),natural in ecotourismthe permanentthe resources target remoteness market, product andmay -forecotourismof that potential thesecurity isarea perceived of investorsenterprisesin investment which to from thebe or fraught(De enterprise wouldinvesting Beer limit with and in istheir divisionsthe Elliffe,located investmententerprise. 1997). andcoupled internalFurthermore, whereIn addition, with propertyconflicts inaccessibility investors a local rights would community mayarrangements notof notthe easily be location- regardless willingattract do notmay to potential engage provideof deter size in privateandprivate-sectorabilityinvestors the to sector business raise (Wyne investorspartnersequity acumen and capital hasoftenLyne, that oftenthat bring 1995). is is someant sothe essential A vital necessary disadvantage that to the improvingto achievingenterprise business of andbeing sustainability. management haspromoting unable to be keptto the attractTherefore,knowledge tourismsimple investors and product theand has inability skills, is to(Ibid). that develop networks, toit Further, limitsattract on the ecotourismsimplethebeHowever, strengths considered has enterprisealso it that should meant toare be alreadybeis. small,limiting Therestated availablethat arethethat is,a size sizefew that within towellper employ that ser knownthe which iscommunity tennot estuary-based isora manageablegoodless (Rozemeijer, employeesindicator enterprises under of per2001).how the operational insimple prevailingSouthKeeping or Africa sophisticated theseason constraints. thatenterprise couldbut that an generateOnemarketing example substantial and of management these incomes enterprises relative systems is to the areincome Ufudu highly potential fly-fishing sophisticated in experience the absenceTheand designedsizes (Pretorius, of ofthose CBNREs to attractenterprises2003). orup-market ecotounsm and whose tourists. enterprises involving local community participation and / or andownership the number could ofbe local described community in terms employees of total income deriving contributed benefits in towardsthe form community of permanent level and development temporary 66 enterpnsesenterpriseseemsemployment. to indicate (Kontogeorgopoulos,which A review appear direct of literature,toproportionality be smaller 2005; particularly in Murphree,betweenterms on of ecotounsmthe income 2001; number Vangenerated enterprises of den people Berg, and they established 2001).the employ, size However, of inbut thesouthern which ecotourism there provide Africa, are AdventuresEasternreleaserelationsubstantial fly-fishingCapeto (a thecontribution community region number enterprise of to Southofowned community people operatedAfrica horse they -level contributedand employ.over developmenthiking the Forlast trailfar examplemorethreeenterprise compared tomonths the Ufudu involvingcommunity to of others fly-fishingthe moreyear which Trust at community- aappearMtentucompared saltwater toestuary members)be to catch biggerAmadiba in andthe in employmentmotshubi,permanentliteratureover the period 2001; (dependingjobs 1999for Van less toden on than2002 theBerg, ten (Pretorius,season) 2001,(10) people (Kontogeogropoulos,Lewis 2003). to et thoseTherefore,aI, 2005, providing Wood, what 2005; a ismaximum1998 establishedRozemeijer, Murphree, of about from 2001, 2001; extensiveeighty Gujadhur Ashley, (80) review full and2000; timeis of that the sizes of nature-based enterprises vary from those providing temporary and authorsgreaterestuaryapproximatelyLourens, thanwhichon the 2004).that provideten subject generated casual Examples almost is jobsthat by the forwildlife canoe ofsamelocal these based communitytrails number enterprises atenterprises Mngazana.. of membersjobs, thoughare have Whatandthe generatedthe theMngazana is revenue apparentUfudu the fly-fishing generated canoehighestand confirmed trails operation incomesby Ufudu which by andat isvarious Mtentu byprovide have far 2001seasonsthatsuchdemonstrated have as;). Revenuesthose even been basedsignificantmore, created generated onwith byestuaries benefits total CBNREs by revenues CBNREs (Murphree,to localin the perbasedcommunities nature-tourism annum2001; on estuaryRozemeijer, exceeding as compared sectorand coastalone2001). have millionto resourcesTemporaryreachedother in nature-based rand up in and termstoSouth 80 permanent jobs, (Rozemeijer,Africa enterprises in can some jobs be fromenterprises(Lourens,estimated temporary to2004). (Ashley,do fall jobsnot within Alsooften and2000; the agreed generatedfrom Rozemeijer,range other by of authorsafive economic large 2001). thousand number on theactivities to subjectof five permanent hundred made of nature-based possible jobs,thousand but bycommunity ( R5enterprisesthe 000.00 presence members - R500is ofthat these 000.00) benefitthese complexextensionsocial,communities political, exercise to societyand cultural, society since (Rozemeijer, the atand largepolitical environmental cannot2001). and Considerationonlysocial beimportance dimensions, reduced ofthese toof economic forthese dimensionsexample,Since enterprises value,the cannot focus make but to also ofbevaluation communities, this easily has Chapter to expressedof consider CBNREs andis on theby inCBNREs, a the value of these enterprises to neighbouring towardsareUfuduhasmonetary inbeen communitythefly-fishing undertaken,terms.form of operationTherefore, development.income beyond to it the isvaluation not InAmadibacommunity this surprising regardin termsCommunity trust, thatPretorius of rewardslimitedas overwell (2003) comprehensive asthefrom income period indicatesemployment 1999 to staff financial valuation to and 2000.and financial otherscontributions Theseof CBNREs, such contributionscontributions as from if craftany, enterprisestheofinitiativesproducers year annual 2000, rangedinrevenues (Pretonus, Botswana the fromnumber and 2003).andthree the ofindicates number (3) jobsSimilarly, to createdseventy ofthe jobs Rozemeijervalue theyfiveby ofthese (75) createeach (2001)permanent medium of for these the lists locals. toinitiatives jobsseventeen large Fromand scale to revenues histheir community-based wildlife-basedlist communities it appearsranged fromthat, tourismin tourism respect twoduring CBNREsindicatingenterprisesUnlikehundred Pretorius, andon the was the eighty economic groundscontributed Rozemeijer six thousand ofvalue economic to does the of (286 thesecommunitynot value indicate000.00) enterprise alone trusts. howto isone likelytomuch While pointtheir to of providingcommunities,ignorethree the total million the suchrevenue very (t3 assigning informationbasis million) generated on whichBotswanian the may importanceby CBNREs be each useful pulas. of andthe ofin powerhavenumerouschampionsother ignorednature-based by the examples of thelocals, development important ecotourismlocalof CBNREs, traditions role and of enterprises naturalparticularlyCBNREs and values, resource as arethose vehicles as founded. wellinvolvingmanagement foras harmonypromoting:That partnerships is, processes toand sovereigntyempower cooperation with in the theirrural andprivate among areas. peopledecision sector, communityThere to making be which theare members (Ashley, 2000; Murombedzi, 2001; Sindiga, 1999). In this regard Belsky (2000:300) writes 67 AccordingenterprisesZimbabwe,close"...widespread to empowerment to where Murombedzi and community grassroots been (2001) (2001) membersparticipation achieved in observedthese were enterprisesin in Gales ecotounsmrelegateda situation Point." community to activities nothing Similarly, members morehas in not thanthe weredeveloped, contextproviders not effectively of nor of CAMPFIRE cheap has engagedanything labour. in in wildlife-based tounsm-cum-conservation that(Ashley,ecotounsmwildlifein decision-making assigning management2000). and value However, other on to nature-based thenorCBNREs it utilisationcouldequity beis in notsuggested enterpriseswildlifeand a simplisticmanagement utilisation. that in thetask,the pointliterature, of andWhile wildlife, that goes there emerges there neitherbeyond are are from many were economicequally the they negative review many givenvalue ofpositive accounts controltoliterature consider ones over isof their2001).valuedisother not future aspects.so This,by much the and in touristForturn,the to pursueexampleeconomic results who self-development.come inthe benefitsself-esteem value to experience ofthat ecotourism andthey In motivation derive, thatcultural enterprisessense, but tourism that the tourism willknowledge for in spur the theirand Bushmanthe otherarea that people nature-based(Gujadhurtheir community of/Xai-IXai history and and inenterprises toMotshubi, Botswanaculture invest inis thosecountedare a jumping-offwho in supportthousands point CBNRE (Gujadhurand millionsestablishment and of Motshubi, rand and (Wood, sustainability 2001). 1998). Therethat Whileit wouldis general the take establishment acknowledgementa good number of many of years among CBNREs for has involved significant investment from donor funds, enterpriseshowever,numberSalafsky,many CBNREs of aimed etthatyears aI Salafsky's (2001:1593) to atfor exhibitpromoting most community-basedproperties statement state conservation that, of was sustainability based inenterprises rural on contexts (Bovamicktheir to becomestudy is any and of self-sufficient."guide, various Gupta, it is 2003;types that lt "itSalafsky,of should willbiodiversity-based at alsobest etal., be take 2001).noted, a if their experience of supporting community-based biodiversity broadercontributesufficiency,excludedenterprises sense otherto all theytheir of models. who whichremainimportance the employed Nevertheless, beneficiariesof high (Rozemeijer, valuethe communityof towhilethese their2001). manyenterprises communities ownedThe CBNREs importance and are. operated becausemay of take CBNREs business of time the to shouldother modelreach dimensions be approacha viewedstate of in andself-that the investmentbeneficiariesgovernment that andare is communitiescivil essential society to (Deand the Beerprivate establishment and sector Elliffe, operators and 1997). operation Whilebecause,CBNRE thisof thein beneficiariesis most soenterprise. the cases, most they Also,often provide theypronounced are capital the include local community members, private sector operators, NGOs, governmentCBNREs.beneficiariesandrecipients profits ofThe from and theof argumentCBNREs mostcivil the society revenueobvious tendsbelow in benefits generatedgeneralto provides limit the derivedare reasons ability bybeneficiaries the in tothe enterprise. atoptimise formto why of of CBNREs potentialnon-governmentalincome However, fromand benefits should thisemployment, short-sightedthat organisations,be could seen livelihood be as derivedsuch view organs supportso of from thatthe of 1998).availablebenefits As arising within such, fromrural Non CBNREcommunities Governmental establishment is irrefutable Organisations could reality be optimised. (Kontogeorgopoulos,(NGO5)That have knowledge offered 2005; their and Naguran, servicesskills required 1999; to facilitate forWood, setting up and operating CBNREs are, in most cases, not managementWood,communitiesnaturalprocesses 1998) resources leading Furthermore,on and the to uponoperation managementthe establishmentwhich they of CBNRE5have CBNREs of naturalfacilitated of institutions are (Flyman, resources based. setting responsible 2001; Also, upsuch of Wood,they CBNREsas forestuary have the1998). and governanceprovided resources haveIn line provided training with (Lewis,and theirmanagement trainingto et localdefinition, ai., 2005;onrural theof wouldentrepreneurialresourceeconomic,CBNREs be considered useare and establishedor politicaleconomic conservation by most benefits entitiesto environmentalpromote goals at which community thatsustainable offer they NGOs opportunities level.strive use to This tobe of achieve contributing naturalbeing for the the Accordingresources attainment case, to the it iswhilstto attainmentof only Meyercongruency demonstratinglogical (1995) of thatsustainable of NGOs objectivesCBNRE5 social, are between those of donor agencies and local environmental resource dependent communities. This 68 ondonorsuggests(1996) behalf agencies NGO thatof donors NGOs, support and localand in plays particular bycommunities, contributinga vital environmental role and towards to inthe the attainmentachieving NGOsprocess provide benefitCBNRE of their an by success.objectives.important rendering brokering servicesAccording toservice theto Harns, community between et ai majoritybeneficiariesare the custodiansworld. of CBNREsFailure of theto has recognise nation's not been naturalbenefits adequately resources and potentialappreciated, (Ashley, benefits moreWhile 2000; thatso, it is Emerton,bycould commonly the accruevery 2000), governmentsrecognised to government their rolethat in the governmentsas if throughout the world including southern Africa 2003).worldingredientsresourceadequate would Consequently, use notsupport for governancesufficiently achieving was this accordedimpacts addressand the management sustainability negatively toissues CBNREs of on resourceto CBNRElocalhasof cooperative meant level use sustainability institutions access,that governmententerprises and (Campbell,as would it undermines insuch not most et delegate asaI., parts CBNREs. one2001; of ofauthority Grima,thethe majorityThatcritical etfor al.,is, providedelegationIndia.implementednatural accounts resource of resource by of governments, successesmanagement use rights of andjointthe responsibilities, resultsresponsibilitiesforest management have been to local positive between level as institutions. government evidenced However, byand Grima, local where communities et aI (2003)sharing inwho of control, and decision-making authority has been benefitedsustainabledeveloping government infrastructure resource asutilisation suchand other responsibilities to facilitieslocal communities at of community infrastructure (Murphree, level and inStudies anfacility 2001; attempt indicate development Rozemeijer, to demonstrate that varying are 2001). otherwise benefitspercentages This hasthe of of revenue generated by CBNRE5 are channelled to resources.managementtherebypeopleresponsibility realisealter Therefore, their ofat the centrallocal unsustainable benefits onlevel government. this ofreduces basis sustainable resource alone, theFurthermore, useburden government resource patterns. on as governmentuse, Fromevidencedcould they this be appreciate itconstrued offollowsby ensuring Hulme that andas and sustainableaconservation value beneficiary Infield those (2001) resource ofresourcesof CBNRE naturalthat use as thatefficiencyfundamentalinterventionssuccess are viable androbbing role that andshould of effects contributesustainable government's give that due toundermined enterprises their support contribution sustainability. totheirfree CBNREs in ofviability turning those Along andefficiency byaround this creating sustainability thread traditional robbing enabling (Harris, toeffects. cooperatives new et conditions aI.,generation 1996) characterised andobserved cooperatives through theby environsAnThis ecosystem supply would of goods inprovide good and aecological serviceswider and is state varieddetermined and range which by of the goodsis characterisednature, and Naturalstate services, and byresources functioning richwhile biodiversity that and inof associated poorthe andecosystem. ecological natural ecosystems provide a variety of goods and services to society. secureadditiondisturbanceandstate bait would fiscal estuariesto members regulationoffer revenue a offerlimited thatof through attractivecivil accruesrange. society, control Estuary viewsto local asof stormwellwhich ecosystems,councils. as andoften services floodThose attract in damage suchparticular, in up-marketnear as and pristinewaste offer nutrient housing treatment,goodsnatural cycling developmentsuch environs floodwater (Mander, as fish, offer plant providing 2001).acontrol, unique fibre In directlydevelopmentsense of and place indirectly, (ibid). and The opportunities and goods it is for and this for services reasonspecial offered that quality they by experienceshould estuarine be CBNREs utilisedand which other inattract are aecosystems sustainable established tourism can manner.and to be capitaliseecotounsm used both on the recreational or ecotourism opportunities offered by andlocalenterprisessuchecological services ruralas estuaries communities.systems are supplied established (Murphree, in bya mannerFrom ecological to 2001; thisconserve that statement systemsReid, does biodiversity 1999). not init couldsignificantlya mannerAccording andbe inferred thatto affectdemonstrateto ensures (Salafsky, that the the functioningequitable intentionbenefitset al., 2001)distribution ofis toecologicalconservation biodiversity protect of coststhe systems basedgoodsto and the contributebenefits of to conservation. improving livelihoods While ecotourismand household activities income enhanced at local level through (Murphree, establishment 2001) of CBNREs 69 whilst(Ashley,relatedBecause supporting enterprises 2000; ecotourism Aylward,conservation also attracts 2003). benefit foreignefforts Also, from bycurrencyCBNREs income rural communities to provideattracted the economy recreational by (Rozemeijer, ecotourism (Ashley, opportunities 2000; because2001). atSindiga, nationalAccording for of localthe 1999), levelmultiplier citizens to non Murphreethey tourismto effectscontribute enjoy to increasing domestic income to the economy (Sindiga, 1999). ensuringtowildlife-basedcommunity (2001)the fact compliance. the of enterprises.DepartmentMahenye, The in benefitThis Zimbabwe,of National situation to society permission Parkswhich of such resultedand to reducedWldlife appropriate, in a decrease Managementexpenditures manage in wildlife on (DNPWLM)and compliance poachingbenefit from granted activitiesenforcement sustainable the points local is that well functioning CBNREs reduce the burden and associated costs on government of senseimperatives.thatmanyknowledge achieved both other tourists Wellonbeneficiaries savings the managed andfunctioning on researchers offiscal resourcesCBNREs and spending management could which provide becould have seen opportunities ofbenot ouras directedbeen beneficiariessoclo-ecological mentioned forto other tourists of in socio-economic CBNREs.systemsthis to document.enjoy through There and for developmentare,research. advancing possibly, In this reflection8.3. on the postulated determinants of CBNRE sustainability.The following section presentsConceptual the framework and that analytical is proposed andframework that has been used to guide atopportunitiesdetermined different scales byfor theeconomic andAt prevailing local how activitylevel these governance approaches andaffect how biodiversity they environment,to arepromotion realised. conservation of naturalThe biodiversity interaction and resources enterprise conservation between to development be variables conserved, and economic operating at local and development are directandlevel practices is approaches depicted of inglobal AtFigure to the natural donor largest14.1 agencies resourcea frameworkscale (International (e.g. management used World for Bank, analysinglevel), and European showneconomic CBNREs on Union, the development in top thisand left study. other box ofinworld theways diagram,foundations) that have policies, procedures economicconservationprofound influencesystem, and economicAt and on National governancedomestic development. or State policies, in levelways legislationpolicy that shape and legislationand the practicesdemand are keyfor for goods instrumentssupport and of services, natural that affect resource and the that social-political and supplythedetermines perceptions of goods institutions andof how servicesInstitutional for the natural natural and resourcedynamicsthe resource demand management at system fornational goods should and andat variousprovincial servicesbe used, level. atlevels and local this intersect level. determines with local the potentialinstitutions thereby affecting toenterprises.resource realise anuse, Localopportunity. governance levelThe institutions supply and managementof also goods influence and services institutions the business and tothe determinemodels demand (CBNRE for opportunities goods models) and services forthat nature-based are is adopted mediated by the local level 70 PoliticalMacro System Social INTERNATIONAL EnvironmentalEconomic NATIONAL LOCAL Natural Supply of goods Determinants of y ResourceSystem -- and services Sustainability levelenterprisedesignInstitutional at -Macro Procedures System PracticesPolicies for SystemGovernance Resourceiianagen1entGovernance Use, and BusinessModels n LivelihoodLegitimacySupport support Socio- Institutions y Enterprise(CBNREd A Sustainability Subsidy SystemEconomicPolitical and Demands forgoods andservices Opportunities n- SocialPoliticalEcologicalEconomic Figure 8.1. Conceptual and analytical framework for CBNREs institutional design. TheseDifferent differences categories impact of business on their modelseconomic are performance. recognised and It is exhibitrecognised differences that ¡t isemanating from their towardsandimportantlevelonly processes underto achieving drive role exceptional processes towards that CBNRE promote achieving circumstancethat sustainability. promoteconservation the sustainability conservation.that Because CBNREsand development this of As demonstrate studyCBNREs. such, assumes otherat Subsidylocal sufficient livelihood that level and the also benefits thetypessupport play legitimacy of at a measuresenterprises fundamentallocal of community structures play that rolean andlegitimaciessuit thesubsidy CBNRE in have order definition implications tolt reflectis postulated have on fortheirstringent the that impact CBNRE a requirementscombination on CBNREin relation of sustainability.for factors to legitimacy economic, such itas considersecological, institutional the political design, different andlegitimacy, types social of livelihood support, social-politicaldevelopmentsustainability. support.systems The success directing or failure change of inthe policies, CBNRE procedures feeds backThis and intoconceptual practices the international framework for conservation and can state be applied and level to aid different foci on the study of the sustainability of CBNREs such as focus on the influence of policies, practices and procedures at various scales and how 71 theyarrangementsbeing shape applied local conservation asto determinantsaid review and of developmentof the CBNRE literature sustainability; interventions. and to focus theIn this thefocus study, analysis is at in the particular, on local the level role the depictedframeworkof institutional in is the combatingparticularly,consideredofdiagram. conservation The rural in during thisframework povertyand study inception development therebyis has the beenstagerole reducing of influencingapplied and subsidy beyond.demands to inhelp theaiding The conductonsustainability theeffectiveother CBNRE a is systemic livelihoodmanagement of and CBNREs. dependencyreflection support and One on operationand onaspectthe naturalits different contribution thatof resourcesCBNREs, is aspects being to withpoliticalmeasures,aresulting combinationrespect and in to legitimacysubsistence thesocial of mentioned determinants sustainability. and uses subsidy dimensions that of As compete leadssustainability such, of to sustainability. thissustainabilityor conflict chapter such with asprovides or CBNREs.CBNRE lack thereof an institutions,explicit As instated terms explanation earlier, otherof economic, livelihoodit ofis postulatedwhat ecological, is support meant that 8.4. 8.4.1. Determinants of enterprise sustainability Institutions 2001;sustainabilityand Campbell, manage of institutions ettheir aI., natural 2001; for Emerton, managing resources, 2001; the as commons Nemarundwe, well as (Agrawal,factors 2003; thatWhile 2001; Ostrom, bear aAgrawal number a 1990), causal and of others scholars Gibson,relationship have have1999; examined examinedwith Bond, the the role of institutions in shaping how local people use anwhichfrom(2003)benefit-based in weakdepth emerged observed to analysis strong in approaches recent that, institutionsof institutions times,in South to conservationsuggests (Bond, Africa, (Furubotn 2001; thatenterprises from economic andEmerton, a Richter, perspective established performance 2001). 1991; ofIn Libecap, driversinaddition, ruralof enterprises forareas, 1991). ainstitutional new with Further,bebody highexplained changeof qualityscholarship,Knight through- change naturalet al. insuccessinstitutions.government'sresources the management or face failure Clearly, settlement institutional at of nature-based a the focus Iuse landproblems onof acquisition naturalinstitutions enterprise and resources challenges grant canlevel programmebe atand thefacingused their level to grouprelationship aidwhichof the understandingsettlement resourceemanate with successful schemes -from for of example succumbing the created collectivedeterminants an estuary. under to action weak the of practices,emerge,institutions, in or effect,in indeed this particularfrom their underlying active study investment institutions structures arein and those considered sets institutions of rules to be Recognisingin (Leach,"regulariseduse, and et are thataI., patterns maintained 1997)."different of explanationsbehaviour by people's that have been put forward by scholars as to what constitutes In this sense governancearrangementsindividualsHowever,structures and"asare level arerulesconsidered as considered wellgivingof the as asrise game",at enterpriseto to be certain institutions critical developmentbehaviours determinants are distinguished either level. of leadsuccess to from successful at resourceorganisations or unsuccessfuluse, managementwhich along CBNREs. withand players in the game" (Leach, et aI., 1997). Because of this, institutional 2000).collective However, resource the managementdesire to establish8.4.2. institutions a CBNRE in general and tothan realise to CBNRE Inbenefits rural components communities provides momentum in particular positive forimpacts(Ashley, the of resource management can be broadly ascribed toResource Use Governance and Management broader process and also presents specific challenges. These challenges, that is, managing community 72 tourismchangeregionsbecame enterprises, ofof evident communityNamibia, when negotiating and institutions community it was partnerships, recognised (Ashley, tourism 2000). andthatenterprises decidingaddressing were on howthese being to challengesspend established income require in from Kunene developmentthe enterprise, and Caprivi and (Knight,networksinstitutions et and toal., manageinformal 2003) theandmarkets factmediate thaton which relationssome they business between all depend, organisations households andAccording to represent and tend the to land, the performAshley community." natural (2000:17)better resources, thanAccording "...rural others social to households need effectively functioning community Ashleydifferencesbackdropcollectivehighlight 2000 some naturalthat andwhich importantdifferentKnight resourceimpact et business institutionalona! management 2003their economic suggestmodels differences and arethat performance. enterprise reviewedinstitutions that impact success below, have on economic orthea lackcausal intention thereof. performance. relationship is lt tois highlighttherefore withThe successstatement institutionalagainst ofthis by Elliffe,are commonly 1997; Naguran, adopted during 1999). the8.4.3. These establishment are the community and operation ownedWhat of nature-based isand discerned operated enterprises from business literature (De model, isBeer that andthe there are three broad categories of business models thatBusiness Models However,hasinBecausecommunity most been instances the givendifferences private last to two involvesthesector models whichcommunity partnership investment ariseare very inowned the model,similar, in latterthe and enterpriseandsave operatedmodel the for community asthe by modela public resultorgans and sectorofpublic of publicthe government, involvementprivatecommunity sector sector involvement detailed privatein partnershipthe last sectorconsideration one,have model.model. which been considerationappliedhighlighted. in the To has nature-based provide been givena clear tobusiness and enterprise systematic sector, institutions, accountinvolving property of rural the differencescommunities,rights,Community transaction between Owned for eachcosts the and ofandbusiness Operatedthese contracts. models models Business Model inresponsibleplan,to thistourism construct, type development. offor a environmental modeloperate the Theyand community, maintain management"would be theand responsible necessary the (Naguran women for infrastructure, 1999:50). especially,mobilising"In Gujadhur this theenjoy facilities model, necessary a andgreat theand Motshubi dealcommunitycapital services, of employmentand(2001) as canexpertise well state own as thatandand beto develop all infrastructure services and facilities relating mentionedNevertheless,makedownautonomy. toa decisionhousehold potentialFurthermore, if lessonson levelisincome yet becausein tocoming the bethat formfully accrues distributionout realisedof ofcash, practical to the(Salafsky,and of benefitstrust community application as et itare al., is thebasedmembers2001). of case this on withmodelparticipation,do not other arehave business anything to income wait modelsfor to directly thego by,trust (lbid). filters the to 73 Enterprise Institutions community-basedAmadibaand terrestrial Adventures natural cultural resource-based (Russell tourism and in Kuiper,IXai-IXaienterprises. 2003) and Evidence the ), MngazanaDqae-Qare of theNumerous application canoegame farmtrailsexamples of in (Lewis,this Gharizi. modelof this et The aI.,includeenterprise last thetwo model exist This model has been applied in both coastal 2005), applyshortappliedbeenbeing termestablished itenterprises (ibid).and constitute is potentially in established the extremely majority the most inhigh world Botswana. empowering risk which for the haveThere community (Naguran, employed are many because1999), this other model. it nature-basedtheyentails While lack many the this institutional difficulties. enterprisesmodel is being And,capacity that widely inhave the to spentoperationalclarity on roles,building management responsibilities, the capacity of the accountabilitiesenterprise,of local community significant (Van membersden amount Berg, of to2001) Becausetime operate andnecessary financialofand the manage forlack resources effective of institutionaltheir and haveenterprise efficient to capacity be in terms of experience and skills, as well as lack of begovernmententityassignedeffectively, a lengthy, with to adoptedefficiently aauthorities andcommunity, complicated regulations and on profitably itthe has delegation processand to organise (ibid).procedures since ofFurther, itselfsuch adequate (Rozemeijer, intorights. for clearlya representative representationHowever, specified 2001) establishment This useaccountableof way,community and management of andsuch members legally a structure rights registeredhas to tomay be be it will be able to engage finalisedcommunity-trustof(Gujadhurstructure,ensured. the Dqae-Qareon It whichand schedule."is reported Motshubi, wasto game take notthatPartly, 2001). upfarm,dominated in ownershipIXai-IXai this VanSimilarly, situation den by the of powerfulBerg inprocess the relationarose (2001:43)farm groups ofbecause toproved establishing the states withinestablishment toin bean thethat a a effortlegitimate community, lengthy"the of toformation a establish structureprocess community took of thattonearlyan a take representative adequately could fourownership not years be moremakememberscommunityrepresentative difficultit more becoming had toefficient, achieveanda voice legitimatethe while inthemajority decision-making, anticipated improving community members theresults involvement inthestructure, the within criteria committee. the in adoptedof intendedwhich all participantsHence, resultedthe schedule most this inin structuremarginalised the(ibid).decision most had deprivedmaking. to members be Thischangedcommunity made of the to it transactionsclearlyaccountabilityits enterprise set (Furubotn out efficientlyand the transparencyroles, and and Richter,responsibilities, profitably in 1991). the operationalso These powers results costsand inand managementa are lengthyobligations incurredThe process need ofduring of the theto that focusenterprise, theenterprise is process characterisedeffort devisingon governance of: building structuring byrules thecostly andthat capacity of a community management structure to manage thesechangingmanagingmanagementoperational enterprises of community the management can areinitial operate. founded. farmowned managementKnight, structures, Thisand operatedobservation et aI. as(2003)committee enterpriseswell is have confirmedas (FMC)setting attributed with in by weakout Dqae-Qare van much rules institutional den of defining Berg theto a difficulty(2001) weakdesign the institution wholimits uponwith attributed operating whichwithin that many whichhad the and to of ultimatelyinandaccompanyingbe a changed thetangled-up FMC responsible due and relations weba the lack of advisor.for of consultationbetween theeffective management According the skills andmanager transferto non-transparent of Van the and denandenterprise the Berglack advisor, of(2001), decision-making.(FMC), clarity the these onwas, manager roles managementby far,and andConsequently, not responsibilities, the ready problemsboard and of hadthe trustees, resultedand bodyto bethe responsibilitiesimpreciseproblemsachanged. period ofAmadiba thatmandates six andledyears AdventuresAmadibadecision (Ntshonagiven making toAdventures hasthe and changedauthority.various Lahiff, to structuresthe2003).go operationalthrough Russell and a seriesmanagement lackand ofKuiper of congruency institutional (2003)structures also betweenchanges at pointleast roles-cum-fouraroseout thattimes out the inof 74 theexcluding exclusion othersof others from from the the use use of of a theresource; resource; the the right right to to Propertytrade bearProperty use the rights costs rights,rights, of inwholly use the and context or thepartially costsof this andof study refer to a secure claim to the use of a resource and to temporarilyoperatedchange in businessorvalue permanently of the model resource andon the to (Gibbs strengthappropriate and of Bromley, de returns; facto 1989; resource and FurubotntheWhile rightuse andmanytoand bear accessRichter, nature-based the rights,consequences 1991). others enterprises have of the been have adopted and implemented the community owned and culturalincludepropertyandimplemented tradable tourismAmadiba rights onat (for enterprisethegroup Adventures example strength level. in the of/Xai-/Xai, Examples(Lourens, depermission jure Botswanapublic 2004),of toenterprises group occupy) Mngazana (Gujadhur rights commonly established (as estuaryand described Motshubi, assigned canoe on bythe (Lynch,2001),trailsto basis communities (Lewis Sea of1999) relatively canoe et that aI,in inruralare2005), insecuresouthern secure areas the Thailandmodelgroupliterature,Playa delevel discussed(though Oroit appearsover ecotourism not utilisationin this athat community section. veryenterprise of fewnatural The communitiesowned in only resources,northern exampleand operated withEsmeraldas particularly established clearly model) defined (Wood, in during the(Kontogeorgopoulos, rights ecotourism1998). the thatreview Based are sector, of secureon literature extensive 2005)would and is tradableandopt thereview fortheDqae- the atof privateproceedQare game sector with farm thepartner adoptionin Botswana. in the of enterprise this However, model (Van is evensuspect den Berg,in this because 2001). particular it Relativelyfollowed case, theunsuccessful insecure authenticity de attempts facto of the resource decisionto solicit use toa and access rights make it difficult to entice potential thatIninabilitycommunitiesprivate mostaddition, oftosector theseinvolve the often difficulties partnersenterprises experienced lack skills tofacing areinvest andpartners owned community enterprise byin thecommunity owned enterprise operation, and members operatedleads management to represented institutionalenterprises and by weaknessmarketingare community exacerbated alluded experience, trusts. by to theabove.And, factthe in community owned and operated enterprises. Because rural thecompetentsince free-and-forced community management trustsrider problems cannot through pay equity (Cook dividends sharing and Iliopoulos, to arrangements shareholders 2000b). so (Knight, InTheseas cooperative to maximise etefficiency al., 2003) theory, their robbing it utility. is vaguely difficult cooperative defined to retain property rights lead to efficiency robbing problems such as experiencenaturalproblems resource are is considered the underlyingmanagement below. causes and ofenterprise the institutional sustainability. weaknessesSea To canoe illustrate that was tend thisthe to firstpointundermine ecotourism the Sea collective canoe enterprise to conduct daily visits to the near pristine island thisenterprisecarriedcommunitycaves it truly and out embraced occurred open itsmembers business air inlagoons many thein inthe absence anof ofenterprise theenvironmentally Ao principles Phangngaof clearly (though defined ofin sensitive ecotourismsouthern from and position manner exclusiveThailand development of (ibid).junior rights.(Kontogeorgopoulos, managementHowever, Neither such as the establishment community downwards) 2005). Innor of doing and thisthe involvement of treacherousandrequirementsgroupprivate Ao rights sectorPharignga), and or beingenterpriseruthless private-group introducedhas competition ownersled to rightsandthe enjoy characterised recentenforced (Lynch, exclusive proliferation for1999). seabyrights severe kayakingThis ofto otherthe situationtensions use enterprises sea of betweenkayakingcombinedthe resources in southernthe companies with operators in a the lackThailand form (ibid). of the licensingof (Phuket Hence, public-Thai killed)companyowned of kayaking one - has of theemerged, companies managers and and of has Sea managers resulted canoe (ibid). of in Sea despicable canoe - incidentsanOf American even suchgreater expatriate as concernthe shooting founded is that (though andSea ownedcanoe not competitors have caused a chaotic situation to arise. In carrying out their business they do not give due consideration to the environmental sensitivity of the 75 transportingislandecological caves system tourists is bound (ibid). to theto Despite result caves in theand the fact lagoons overcrowding that a are total often of oftwenty overloaded the caves companies andhas ensuredlagoons, transporting the the recent tounstsfact that overcrowding to the the boatssmall tocavesdegradationof thea situation caves.fromand lagoonstheir of Thisof the lists.lawlessness ecologicalhas in Lacknear resulted ofpristine system, clearlyin in Ao the condition Phangngadefinedsome recently tour rights(ibid). observed operators(ibid). and Because Free-riding regulation steadyhave of threatening thedegradation byis observed steadilythe responsible to removeof leadingovercrowding what authoritiestour wasto environmental visitsonce and to sacredhas steadythese led aslocaldegradation is communitythe case and in members themany eventual of (ibid).the shutcontexts down where of an ecotourismthe community enterprise ownedBecause that and suchprovides operated free-riding significant business problems benefits model are to ispervasive in the context of vaguely defined property rights, enterprisescontributinginsecureitselfapplied; a typical it andis (Gujadhur forto inadequatelyexample thethis complexity reason and of Motshubi, thethat defined of modelthe establishing Sea 2001; rights. described) canoe Naguran, The viable example intention to 1999). andillustrate has sustainable is been to some highlight included of community the some in problems this of sectionbased the thatmany and(though arise problemsoperated out not ofin inadequatelymanyresourcedemonstrate community use defined andbenefits accessowned rights. of rights.institutionaland And, operated The as BondSea change business canoe (2001) is example states,difficult models many clearlyin are the ofadopted absenceconfirms themBond do in thisnotof an(2001) strong observation.provideenvironment observed and financial clearly Unfortunately, ofthat weakincentives establishingdefined and sound institutions to operate and manage CBNREs and to for institutional change. Transaction costs poorly(Wyneinstitution compared and or Lyne, organisation to 1995). a similar In (North, theoryenterprise 2000). an enterpriseoperating They also with forced include minimal to dealthe Transactiontransaction costs with costlyof negotiating costscosts transactions (Libecap,include and the 1991).enforcingwould costs perform of establishingrules an institution, using an institution or changing an responsibilitiescomplicatedthe model applied) lengthy between seems process operational to indicate that requires management that the clear formation definition and governance of a of representativeReview the community, structures of literature and (Flymari, as legitimate on well community as 2001; thestructure rolesVan owned den andis anature-based enterprises in general (that is regardless of Generally,enterprises,seriestheBerg, right 2001;of attitudeengagements this particularlyGujadhur leads towards to and whereishigh required operatingMotshubi, transaction the community to a2001).build financially costs the Becauseowned ofcapacity establishing viable and rural of operatedand rural communities sustainableenterprises communities model haslack thatenterprise been tothe are effectively skills, foundedadopted (Flyman, experience manageandon common 2001),applied. andtheir a atand(Ntshonacostsproperty least the arise Dqae-Qaremore resources. and out thanLahiff, of frequent twicegameIn 2003 the in farm case; anVaninstitutional effort(Vanof den a community dentoBerg, eliminate Berg,changes 2001). 2001)owned theBoth which hadweaknesses and Amadiba toappear operated change Adventures to of operationalbusinesscharacterise preceding (Ntshona model, management structures this higher businessand Lahiff,and transaction structures achieve model 2003) property2000),downsidestructureeffective and managementresource,to of addanother these up frequenttothus in alreadyandan increasing attempt economic institutional high to transaction transaction eliminatesustainability changes weakness costs costs is of that theof even they establishing enterprise.and further. are establish companied WhileTherefore, an sound enterprise it is by logicalenterprise transactionit can based to be change institutions,postulated on costs a fromcommon (North, onethatthe community owned and operated enterprises suffer from high transaction costs which comprises initial 76 changes.transaction costs of establishing the enterprise and transaction costs associated with frequent institutional Althoughperformancereported the thatserious evaluation in of its the financiallycurrent enterprise; of form,the losses Dqae-Qare Amadiba nevertheless, experienced Adventure enterprise it stated by is Amadiba notdid that financiallynot the Theprovide Adventures enterprise evaluation viable. any Furthermore,guidance inwas of the the not 2003 economic financiallyon Lourensfinancialthe financial viability viable (2004) year. of- Amadiba Adventures conducted by Lourens (2004) a(Kontorgeogopoulos,rarenessthathence model contribute the considered institutional to the to 2005) bementionedchanges the lt mostis, made however, financialpotentially (van unfortunate denlosses empowering Berg, and 2001).that to is thesuch applied. Perhaps, lack problems of financialit is appear these viability, high to be transaction pervasive as well as wherecosts the of economically successful cases of community owned and operated enterprises A classicContracts contract can be understood to be a two-sided legal transaction in which two parties agree obligationsoutlined.enforceability.on certain Because mutual inof termseach Parties obligationscontracts partyof theto (ibid).the contract. are agreement,(Furubotn Above legally that, enforceable, and which procedures Richter, is legally they 1991). for encouragebinding, dealing The strength specifywith parties breach ofthe tosuch rights, theof the aagreement contract responsibilitiesagreement is to in fulfil areits legal alsoandtheir trophy-huntingandin the operated /Xai-/Xai operation model community for (Gujadhur cultural in Botswana andtourism Motshubi, comprises and the 2001). community two In business the AmadibaAs private withmodels, Amadiba case,sector that Amadiba partnership is,community the community Adventures inmodel the Easternowned forhas the Cape, South Africa, nature-based tourism businesses SNV-Botswariaoperationadopted the resembles community - an NGOa community owned that supported and private operated sectortourism model partnership development while modeltheDuring in salt-water the (Ntshona theIXai-/Xai funding catch and area. Lahiff,andphase, Despite release 2003). the thereIXai-/Xai fly-fishing being cultural enterprises were supported by the advisor from enterprisebuilding.communityreviewno mention of Furthermore, enterthis representativeof problemscase into formalis thatthe with agreements structurereviewno capacity mention of and thisbuilding with is the case made any NGO carried ofconveys ofits regarding anyservice out agreementthe by providers impressiontheobligations SNV being oradvisor, suppliers.thatand entered notexpectations what at anyisinto evident stage between on capacityfromdid thisthe the participatedAmadibaRDP Committee, Adventures. in this committeewhich According was and originally to which Ntshona wasentrusted assignedand Lahiff with the (2003)the responsibility responsibility theIn themain Amadiba ofreason managingof operating case, was thattheNtshoria and enterprisean NGOmanaging and whichLahiff while (2003) report the reasons that led to the disbanding of the Likepartieswasdecisionbuilding the concerned expectationthe/Xai-/Xaimaking, capacity failed andcultural from of neither to local fulfilthe enterprises, community didits obligation.any agreement review members,members However, of existthe toit case wasbetweenwhateffectively notsuggests is discernedcontained the engage community that fromin Amadibaoperation, any this and agreement case the Adventures management NGOis that between in while question. has andthis thenot activitiesenteredDevelopment into on anythe farmTrustformal (Van was agreement denentrusted Berg, with with2001). any ensuring of In its this suppliers particularaccountability or servicecase,A similar in the theproviders. NGO experienceoperation showed and is lack managementreported of commitment in the of theDqae-Qare game farm, where an NGO called Kuru to the project and did not honour its obligation in terms of building the capacity of the locals. However, 77 NGOlater thiswas situation undermining changed the viability following of the an enterpriseevaluation (Van report den which Berg, pointed 2001). that lack of commitment by the projects.byoperatedcommunity Donor businessWhileAgencies representative funding modelwho arrangementsfund isstructures applied. local NGOs andPartly, between other to theimplement parties problem these in developmentparties, thehas enterprise, to do Clearly,(Donors with and wherethat evidenceandnatural rural theNGO5) developmentresourcecommunity points are tocementedmanagement ownedthe is fundedlack and onof application of legally enforceable agreement between commercialunderstanding((Ntshonaso,formal it is contracts, not and surprising transactions. Lahiff,and between appreciation 2003;that localsome SuchVan NGO5 denNGOs oflack legally Berg, andof have understanding communities 2001).enforceable failed Consequently, to fulfil formalagreement of their the contracts promiseimportance community as instruments are in relation not membersof enteredcontracts tofor capacity continuereducinginto. adds This building to riskbeing lackthe in complexity of establishing successful community owned and operatedThe enterprises. Community Private Sector Partnership Model theresourcesbusiness rural poor acumento (Naguran,optimise and the access1999). balance Underto between capital this that wisemodel private use four of naturalsectortypes ofoperatorsresourcesThe arrangements community andposses economic privateare with discerned the developmentsector community's partnership from for model is a business model that combines the sound therights,entrepreneursindividualliterature, community transaction that members private is,partnership lease costs sector of agreement, andthe model). partnership communitycontracts In management this appearmodel. documentand the toIssues becontract, private thecross-cutting discussed three sectorjoint arrangements venture, below operatoron all relatingof and these (privateare a partnership toreferred arrangements institutions, sector to asbetween community variantsproperty including few of the community public private sector model. Lease Agreement ¡Management Contract communityfunding)to operate and facilities remains to employ that responsible localshave been in the developedfor operation the development byand the management community and maintenance Inon of this communalthe arrangement enterprise of land infrastructure (Naguran, (normallythe private 1999).from andsector donor other The is mobilised by a lease agreement or a management contract wouldtheBeerbuildingfacilities. communityreceive and and The Elliffe, an facilitating private agreedwould 1997). sectorreceive upon theWith Small maylease respectall returnsbe Mediumfee assigned to on benefitless a andregular the the Microflows, costs responsibility basis Enterprise inof the(ibid).the casemanagement forIn (SMME) the ofenvironmental a case lease developmentcontractof agreement, a management management, and costsand the supportcommunity contract,associated capacity (De with the operation of the infrastructure and facilities (ibid). Joint venture between the community and the private sector operationalinfrastructuretheparticular philosophy area management and or that the facilities theintended privateof to the the enterprises enterprise(s), sectorcommunity would (ibid). at environmental theBuild-Operate-Maintain-Transfer Normally, end of thethe management agreedjointIn this venture period model andagreement (ibid). the SMME community The(BOMT) isdevelopment responsibility underpinned all mobilises tourism and for by the private sector to develop the tourism potential of a support is assigned to the private sector partner to lead (ibid). This model offers a range of benefits to the 78 sufficienttrainingemploymentcommunityincluding and evidence incapacityjoint and the venture SMMEway in building ofthe genuineopportunities.partnerships, literature for local equity pointing community create share to orin themembers themaximise limited enterprises, (Ashley, extentopportunities short to2000). which term forContrary thisconcession empowerment is achievedto this fee claim, payments,inin the realthere form life is of lt is often claimed that partnerships with the private sector situations (Belsky, 2000; Murombedzi, 2001; Sindiga, 1999). Community entrepreneurs private sector partnership communityandestablish Elliffe, a 1997;privateas to howWood, business the 1998). tourism entity It isandpotential this to businessthen of developthe entityarea the should which tourism inbeIn turn potentialdevelopthis negotiates model andof acommunity theparticular an benefits agreement area members that (De with should Beer the (entrepreneurs) partner with a private sector operator to incentivepartnership,demonstratemixingaccrue ato small theto work itbroaderbenefits alsocommunity associated tries community to tothe business offset broader with from some benefits partnership community,the of agreed the that cooperative withare development. through toocooperative diffused theenterprise creationThis enterprises.to motivate model problems of ais smallWhileeachbased that community individualthis on reduce theapproach philosophy thecommunity business naturalaims of to theenvironmentalsuchhardest,member private as salewhile(Wood, company of managementnot craft1998). undermining may and A assume smalllease is a the jointcommunityof a communitylargerlead responsibility role community's business in environmentalfacilities of the partnership ability private(e.g. communitymanagementto company benefit serves from toand lodges) rewardand thecooperative in community. SMME(ibid).those Inwho developmententerprises, this However, work model the enterpriseprofitsformfacilitiesmobiliseand support. of from employment as resources partand,the As useofregards in its return, forof opportunitiestourism community development the earn development package a facilities.percentagefrom and(ibid). the of the communityBecauseenterprises,In private this of thearrangement community companyprofits, infrastructure SMME they would benefitsopportunities associates benefit and then accrue facilities, throughmanage are such to required the as equityand community craft marketto shareoutletswork theseinwouldin and andthethe manycanoelodgebeenenterprise appliedyearsrun is an byoperation the examplea and Masai business has and businessof proved thismanagementoperated model topartnership be very - aalthough training tremendouswell) (De (Kontogeorgopoulos, carried itBeer is experiencing success and out Elliffe,by theirin Ecuador1997) some 2005).private - difficultiesand sector(ibid) Sea in partner. canoeKenya alluded inThis - Thailandtheto modelearlier, Il Ngwesi (Seahas for InCommunity terms of institutional public prWate features, sector this partnership model approximates model the community private sector partnership thecommunityissuinggamemodel. state reserves) It of haswould concessions, to beendevelop leverage(De applied Beer or use theand in crowdingexistingcasesstate EUtife, caninvolving 1997).infrastructure in induce of theThe land theprivate model and andprivate natural sectorfacilitiesis primarily sector resourcesexpertise, and tofounded to form run ownedinvestment viable on the by enterprises. partnershipsthelogic and state that lending. (forthrough This examplewith At way, thethe theformjointconcessionssame state responsibilityof time income which it would(ibid). fromis invested ofensureIn equity theterms private inthatshare, of community thisthe sectoremployment neighbouringmodel projects.community the responsibility and communities in partnership. the form for areof environmental a Benefitsinvolved percentage in,to the andmanagementof turnovercommunity benefit fromthat becomes arise accrues the issuedin the to 79 Enterprise Institutions executionpartnership,and because its managementfunctions.the terms ofFurther, the has partnership tothe adhere agreement are to commonlystringent outlines rules outlinedthe roles, for Becauseintransparency responsibilitiesagreements all three andthat andarrangements formaccountability accountabilities the basis mentioned ofin thethe of above engage an experienced private sector operator, andthatofaccountabilitieseach engaging theymechanisms of thebring experienced parties the filter forexperience through inmonitoring the private toagreement. that lower sector the is operationalsoperformance operatorsvital to enterprise levels. in of these management According success,enterprises to that thereby(Knight, (community-based is, clear etreducing ai., operational 2003) the theenterprises) effect procedures advantage of the is In turn, such clearly outlined roles, responsibilities and establishancontrol in-depth problem. the understanding necessary In addition connection ofto theenterprise target with the market operation target and market and its managementdynamics, (Wood, Property1998). and skills, - Rightsthrough experienced existing operators linkages -have can theirandpartnershipunclearly resource tradable. defined usemodel. In rightsmost and Where forcases insecure benefit this this model propertyrightsmodel is (Ashley, appliedhas rights, been 2000;rights this applied isWynearrangements not where theandWhile case Lyne, the theare withcommunity 1995). communitynormally the community givesclearly owned up defined, privatesome and oroperated securesector all of business model is normally applied in the context of intoandestablished betweenthe private under the sector Chipinge CAMPFIRE. (Zimbabwe Rural These District Sun enterprisesLimited council - andZSL) were the which Zimbabwebased was onIn founded a MahenyeSun partnership Limited on (ina lease (Murphree, betweenZimbabwe), agreement the 2001). communitysafari-hunting entered While and non-consumptive ecotounsm enterprises were agreementcommunity,Districtinthe terms partnership Council of formalstated meant was (CRDC) thatauthority thatsaid the the to- council a be overagreement local between Mahenye's undertookgovernment thehad ZSL landtoto beuseauthority and and entered its the natural best Mahenye - and intoendeavours resources hadbetween community, not beentois ZSL ensurevested formallyandthe infacttheCRDC. the continued thatdelegated Chipinge However,de jure popular toRuralrights the the years,developmentsomesupport revenueand of the and obligationsMahenye available natural wardoftoresource eachthe community Mahenye of usethe partieswhich forcommunity couldtheto the projects beagreement (ibid).exercised andAt The stipulatedMtentu(ibid). byagreement the estuary, ZSL that over specifiedthe located councila period rights inwould of the ten to Wild make land(10) Coast of the Eastern Cape, South Africa the lease exclusivetradableManagementfoundedagreement at onrights groupentered a tocatch to the leveluse into andAmadiba theserved between releaseMtentu as community theestuaryfly-fishing basisAmadiba for for(Pretorius, apermit thecatchCommunity agreement. issuedand 2003). release andby TheThisthe Ufudu fly-fishing Directorateagreement secure - a private operation public-group specifies for sector Marine over thatoperator rightthe and Ufudu last whichCoastal three- washas is agreementtariffmonths and of has thebetween to year. provide UfuduIn turn, employment and Ufudu Amadiba has opportunities to community pay to the for is community therenewable local AmadibaIn trustevery Namibia, twelve five community years. wildlife percent ismembers (12%)the property of (ibid). the ofdaily The the state, but under a 1996 legal amendment, communities negotiatedcommitteeableconditionalthat formto mobilise defined useandof Bersig rightsconcludedprivate management overarea sector wildlife whicha joint investment units fringes(Ashley,venture can thein registerbusiness2000). rural Namib tourismOn with activityDesertthe government basisdevelopment within ofKunene Wldernessthese as (ibid). rights, aRegion " ForSafaris. conservancies (Northexample, On West the the strengthhave Namibia)residents been of "conservancy" and receive Wildernesssecure and Safaris tradable was rights willing over to invest wildlife in a grantedsixteen (16) by governmentbed tented 'Damaraland to the community Camp' (ibid) conservancy, 80 thecommunityregularrights broader gained tourist memberscommunity, from visits the establishedto BormantheEcuadorian craft and store.a wilderness governmenthis In associates addition, travel (Wood, theysupported enterprise also 1998). assisted a In localonIn Zabalo, orderthe communitythe strength tocommunity Ecuador, provide ofcraft tribal ecotounsmRandall in store building land by Borman ownership arranging benefitscommunity - a toprivate sector entrepreneur - together with ten (10) Cofan establishmentownedinstitutionreceives tourist all thatsets cabins.ofprofits manages theselimits fromThese enterprisesfor thehuntingthe cabins use rental, ofwaszones are natural but maderented andhas resources possible fines toout pay to levied Bormana byby caretaker the membersagainst existenceand tohistransgressors. of maintain company the of alocal strong the communityand The cabins.community the fines community In(ibid). levied Zabalo, level This to 2005).foundedtransgressors Sea Sea Canoe Canoe,increase is the with firstoldest, subsequent marine successful ecotourism infractions and mostcompany (ibid). renowned in southernIn environmentallysouthern Thailand Thailand, ((Kontogeorgopoulos, sensitive an American ecotourism expatriate named John Gray, along with two Thai partners, aboadalreadycanoeenterpriseit is also employsescort stated, ininvolved Ao boats Seaa Phangnga. large in canoeto environmental numbera number operates In order of localof educationseatosmall subscribecommunity kayaking islands and to daytripsmembersotherand the then principlesenvironmental in - transportedAo about Phangnga, of 40community conservationto by60 where guidesdepending based tourists effortsinto ecotourism, oncaves inarethe the broughtseason;aboard area. Sea As ofand inflatablethe provides resource kayaks significant base. (ibid). As benefits a result, for when the local tensions community, emerged it does between notWhile enjoy Mr Sea Gray clearly canoe and defined washis twoestablished rights partners, to the by they use a private sector operator together with other two Thai citizens crowdingKontogeorgopolousotherofdecided the sealack to narrow kayakingofestablish exclusive caves theircompanies(2005) and and own defined theopen operation significantly that air rights lagoonsconduct which to the high washasecotourism use number forcedsimilar of the wildlifeinresourceof activities everysea tokayaking respect base,flee in the those there to companiessmall Sea regions has canoeislands. been of(20 (ibid). anAo Accordingcompanies) explosionPhangnga Because toof degradationdowntourismstandardslimestone on authority illegal or causedislands licensing operators officials bysuch shoddy requirements asofor Thailand coastlinesactivities. industry inor practices Government and tandemthe openunwillingness (ibid) with air corruptionlagoons. the absence of the This and National ofis apathy largelyenforcement Parks have a result Department led capabilities ofto aenvironmental lack toof among clampindustry arecommunity secure publicand tradable private sectoris an obvious model are reality based pointed on clearly out in defined thisThat, literature resource for the review. mostuse and part, The access thefact communitythat rights many that private sector model (and its variants), as well as the effectsuggestionauthorsproperty(Ashley, that on emergent rightsthe2000; by subjectcooperative (CookBond, external have and2001; associatedIliopoulos,theory factors Flyman, that arising 2000a). these 2001;failure from businessNaguran, However,of vaguely cooperative models 1999; thedefined Sea Wood,withenterprises canoerights success 1998) haveexample can andis the evidence beeconomic potentialprovides traced that toevidenceonsustainability undermine corroboratesill-defined to the the success of the most renowned successful enterprises - regardlessTransaction of the modelcosts applied. partnerpublicmanagement private (ibid). Becauseissector commonly partnership in either the caseresponsibility model management such offunctions the of theprivate usemayAccording sectorof fall the within resource operator. to theNaguran basedomain However, falls(1999) of within the in in apublic the thecommunity communitydomain sector private sector partnership model environmental of an experienced partner with sufficiently high capacity, it is often effective and the requirements for 81 trainingpartnershipcreateFurthermore, and incentives capacity and in thetheory, for building communitycompliance demonstrating are generally public(Wyne private andthe lower benefitsLyne, sector than 1995). offorpartnership sustainable community And, the models fact resourceowned that are theand consideredutilization community operated or to enterprises. privateconservation be the sector most whichfinanciallycommunitymonitoringcommunities adopt viable privateeitherand thereby (Bond, enforcing ofsector thesecreating2001; model wiesLourens,business further orbecomes its 2004; incentives variantsmodels minimalNemarundwe, could demonstrate for compliance. (Wynebe associated 2003; and benefits Wood,UnderLyne, with 1998)1995).ofsuchlow conservation transaction circumstances, suggest This suggests that costs to enterprises the the compared that ruralcost the of deficienciesto managementthe community resulting of owned the enterprise. in andrecurring operated The institutional Amadiba business Adventures model.changes at institutional the Thelevel community of changes the structure described owned charged andby Ntshona operated with the and model appears to suffer from pervasive institutional ofchanges,communitychanges Lahiffclearly (2003) aredefinedwhich owned two asoccur mandatescases institutionaland in operatedanof typicaleffortand evolution accountabilities, toenterprise institutional devise and institutional models.the changes asDqae-Qare well Russell forms asthat lack gameleadingtend and of enterpriseKuiperto farm toundermine enterprise (Van (2003) operation den the have sustainability,Berg, sustainability andassociated 2001) management institutional with theseof lack the adherencemakingmechanismsoperatorsskills and authority mechanismwho to to business adheremonitor and responsibilities. to toprincipiesthe monitorsound performance business inperformance the Stringent operation of principlesmanagement. requirements of and management. ensures management Also, for a itaccountability, clear ensures Engaging of definition the congruency enterprise experienced transparency of accountabilities counteractbetween private and decision general many sector and of transactionpartnershipTherefore,lowersthe institutional transaction costsandbecause deficienciesthe compared costs community - from through facing toan thepublic institutional eliminating community private thosesectorchanges ownedowned associated partnership andand vantage operatedoperated with models point frequent modelsbusiness - havethe (Knight, community institutionalto model, deal etwith it aL,is changes privaterelativelynot 2003). surprising sector Also, (ibid).lower it transactionsandappearthat,(Bond, thewith to Dqae-Qare 2001).respecthave would been And, to performeconomic affectedthegame fact poorlyfarm thatby sustainability frequent neitherconfirms compared ofinstitutional theandthe to community viability,theoryan otherwise changes that they private an performassimilar enterprise itsector is theenterprise better business case forced than with operating modelsthe Amadibato communitydeal reviewed with with Adventures minimal costlymodel above transaction costs (Libecap, 1991). Contracts asextensiveLimited one ofwas thenegotiations, founded most mulled on drawing a leaseover agreement theagreement comment in which existence."from runsone legalfor (Murphree, twenty reviewerAs stated one 2001)that (21)earlier, "This pagesThis the document agreement, andpartnership was should a whichsubject between stand was of the Chipinge Rural District Council and Zimbabwe Sun thewellbinding Amadibaas theon durationboth Community council of ten and (10) was ZSL, years founded also during specified on which an agreement a the whole agreement range enteredAccording of would obligations into be to between effectiveNtshona for each the(ibid). and twoof Lahiff the parties. parties, (2003) This asthe Ufudu fly fishing operation involving a partnership with beyondwhichagreement Ufudu which specified could it would exercise thehave rights to its be exclusiveand renewed obligations resource(ibid). of eachuse rights, of theThe as parties, welljoint asventure the the period duration business during of activitythe the agreement year entered over into between the residents committee of the Bergsig contractarea in Kunene between Region, the two Namibiaparties (Ashley, and Wilderness 2000). Among Safaris others, was this founded contract on stipulateda negotiated the periodand agreed beyond to 82 thecontractyears),which obligations ownership the period income of(that eachof thattheis, often enterprisewould the (10) parties accrueyear would incontract termsto bethe oftransferred withcommunity the five agreement (5) to yearper the annum(ibid).renewal) community (N$ (ibid). 50 (that -Further, 70 is, 000 in a itper periodclearly annum), ofspecified 11-15 the strongitcontractual would enterprise appear agreement that institutions, because was entered of informal the stronginto contractualbetween community the arrangements community level resource and Review- describedusethe enterprisemanagement of the by Ecuadonan Furubotn operators. institution and enterprises However, andRichter the operated in Zabalo does not seem to indicate that formal andstated,theobligations(1991) establishment his it company. isas inpossible relational terms of Similarly of thatthis thosecontracts somesuccessful informalwith agreement to Sea which ecotourism contracts canoe, the was parties nothing-reached enterprisehave stick been suggests on for - theentered as as leasedescribed long that into of asthere communityand it by is washavemutuallyWood any served cabins(1998). formalbeneficial as to Although the Mragreement basisBormanto honour not for bynegotiatedbetween tour representatives the contracts owners withof basedthe a numberenterprise in other of areasmultinationaland the of Thailand.local tour community. operators Clearly,However, in order the toit isaboveassure indicated examplesthat itsthat trips Sea indicate are canoe sold distinct differences between the community owned and informalcontractsagreements,inoperated conducting contracts modelhave thebusiness been and Zabalo has thesuccessfully activity. beencommunity enterprise aided While applied. private byin most theEcaudor However, sectorconduciveof these provides partnership itcases shouldcontextual anindicate beexamplemodels noted environment application with that of anregard such enterprise of characterised successful classicto the use wheretwo applicationof sided contractsby informal sound legal of resource use management institutions.8.4.4. Legitimacy maintain(Suchman,proper and legitimacy appropriate1995:574). for thewithinIn thepurposes somecontext sociallyof of achieving CBNREs constructed continuity, community system credibility"Legitimacy representative of norms, as well isvalues, a as structuresgeneralized both beliefs passive seekand perception definitions" andto gain active oror assumption that the actions of an entity are desirable, withsupportSuchmanlegitimacyon gaining common from (1995)andthevary, property broadermaintaining and points legitimation resourcescommunity out legitimation that organizationsinvolving requirementsmembers requirements a which variety orare representativethey determined of of stakeholders,represent. their constituencies. by entitiesAnd, each constituencies because entity's act inThis ways CBNREsmandate. being thatthat so, arepronounceare In whilefoundedthis consistent regard the on withascasebeactions other anperceived with organizational ofentities/organizations otheran entityto constituencies be -desirable, asresource it pertains with withproperthat differentto affectsa access,similar and theappropriatelegitimation level use internal ofand interest management functioningaccountsto a particularin the has sameof of anto constituency,particular beorganizationresources. carefully natural Therefore,managed. this and resources may its relationship notHence,legitimacy be - may the representativeCBNREs.legitimacy is considered structure to in take this literatureforward their review business in relation interests. toAs its indicated Nature-basedimplications in the on tourism precedingthe sustainability or ecotourism section, of communities commonly establish some form of a formed.thedemocraticallyofferliterature establishment to This negotiate is association replete electedof a viablewith joint comprises examples a ventureand Residents sustainable with allof attempts households Committeethe Bergsigenterprises. to ensure as thatcommunity, registered enteredFor the example, legitimacy aintomembers, legal negotiations in body ofresponse such and or itstructuresResidents is towith these Wilderness Wilderness members soAssociation as toSafaris' facilitate Safariswho was (Ashley, 2000). In the case of the /Xai-/Xai hunting and cultural tourism a ward system was used to 83 organizepromote adequate themselves representation into family groupsin the community according committee. to ethnicity Because and class, of the a ward observation system that was residents decided structuresCommittee,Inensuredupon the and Amadiba that eachthat setthe were wardarea, wealthierup already tohad Ntshona establish to families independentlyexisting and and orLahiff in oneoperate the (2003) ethnicchoosearea Amadiba and groupreport one included man didthat Adventures not andin a orderdominatefew one others. womanto comprised gain (Gujadhur legitimacy,to sit on representatives and the theMotshubi, committee. original 2001). RDP ofThis all processKhobeesectorcommunity-based partnership toXeya establish Trust naturalenterprises this- a communitytrust, resources and were to representative developestablishedmanagement the land-usebased initiativetrust on- managementafter resource-user(Flyman, Inan KDI, intense 2001). Botswana,plan rightsand (ibid.These genuinely granted The huntingcommunity local to participatory governancetheand privateNqwaa photographic safari enterprises were established as part of representingsettlementdecision-makingrecognitionstructure (trust) hasof eachthe isa inbasedfactrepresentative familyKDI that (ibid).on groupfamily family KDI (ibid). groupssettlementgroups residents Four are (ibic!). seen peopleincommittee eachThe as decision fromthesettlement appropriatewith each to two formsettlement have people thecultural formed trust (one committee unitsas family man such of groups,co-operationand was represent one based and woman) on eachtheirand the achieveadequatesettlement legitimation representation on the boardof its activities.of of community the trust (ibid). members The andtrust to was promote structured,Suchman accountability (1995) as described describes in the leadership, so different as to ensure hence types of Iegitimacies; these are pragmatic legitimacy, moral identifyrepresentativeFurthermore,anticipatedlegitimacy with and benefitsthe structure,pragmaticrepresentativecognitive that areandlegitimacy. legitimacy derived achievingstructure byAccording hinges (ibid). pragmaticthe constituents on to the legitimacySchuman perceived from is (1995)the determined abilityactions pragmatic to of influenceby a representativewhether legitimacy the the actions restsconstituents structure. on of the a (consequentialisrestslegitimacy considered on judgments which to legitimacy),berest aboutright on judgments(ibid). whether evaluations lt usually the about activity takes whetherof procedures is on the threea given"right forms: andthingactivity Moraltechniques evaluationsto benefitsdo" legitimacy within the(procedural of the outputsevaluator, rests cultural on and legitimacy), normativedefinitionmoral consequences legitimacy ofevaluation andwhat of the entity and its activities. And, unlike pragmatic comprehensibilityevaluationsrepresentatives of categories (personalor mere andacceptance legitimacy) structures of(ibid). the(structural entity as legitimacy), necessaryCognitive oras inevitable well as legitimacy evaluations based on involves some of leaders taken-for- affirmative and backing for a representative entity that is based on legitimacyfocusenvironmentgrantedunderstandable of cultural legitimation reflects account accounts. direct moves (ibic!). exchange Suchman from lt is pragmatismpremised and (1995) influence onstates tothe moralityrelations thatunderstanding legitimacy to between cognitive. becomesof thea representative Thisworld harder is as because a tochaotic manipulate entity pragmatic cognitive and as its the in which participants must struggle to arrange their experiences into coherent, that,generalizedconstituents. in CBNRE cultural As establishment, such concerns it is easier underpinning the tofocus manipulate of legitimationmoral exchangeand cognitive has been and legitimation. Basedinfluencebased on thisrelationspromoting theoretical as good opposed review influence ofto legitimacymore and as described by Suchman (1995), it is quite apparent moralconsistentcommunityachieveexchange legitimation this relationswith representative pragmatic established are between clearly form normsstructures,illustrated theof legitimation representative and by standardsas the well haveKDI as entitiesexample that meantthe obtainconfiguration and thatabove. theirin procedures a However, particularconstituents. of these whilefor setting. electingstructures Inlegitimacy addition, These individuals have isaspects efforts attended to be to toof developingto in the context the resourceof community use representativemanagement structuresinstruments and such procedures as management for electing plans, representatives generally, and the 84 onliterature the sustainability on nature-based of these enterprises enterprises. does Nevertherless, not explicitly reflectit provides on the specific implications examples of lack of theof legitimacy effects of establishedsustainabilitydelegitimated after is structures therefore the disbanding deducedand how of from they both such have the examples.RDP affected Committee enterpriseA and specific functioning. the Amadiba example The Natural of impact this situationResources on enterprise is the and Amadiba Adventures Management Committee that was transactiondissolvedthedisgruntledTourism decisions Management and withcosts taken itsthe which dissolution leadershipby theCommittee could committee, style haveand ofwhich thebeen the thus formation chairperson, avoidedsucceeded they would ofhad acommunity it notthe new(Ntshona respectlegitimacy one membersmeant andits decisions.of Lahiff, thean felt unnecessarycommittee 2005).that Eventually, they Apart hadbeen increase fromnoit carefullyhad voice being to bein maydelegimationmanaged. arise as aof result an enterprise of too much related focus structure on one on particular the sustainability typeThe of legitimacy.above of a CBNRE.example For example Other is just negative one in Dqae example effects Qare drawn from literature to illustrate the negative effect of (ibid).members2001).topreoccupation the adoption WhileThis of resulted thefocus withof community. a on achieving selectionin pragmatic the formation Consequently, criteriapragmatic legitimacy of anon-participation appealfarm itmight failed management to havethe to performmost been in existing marginalizedcommittee reasonable, its duties community thatbecause memberstoo comprised much structures of a offocus severe thethe (Van communitymoston lack it den leddeprived of to Berg,skills ledthe transactionformationconsequential of costs the structurethat legitimacy could that have score. was been not As avoided. desirable, such, it had proper to be and reconstituted, appropriateDespite the when anfact indication that evaluated delegitimation of againstunnecessary impacts the negatively on CBNREs through increased transaction to legitimateconsiderrights.costs;achieve also, Community toCBNRE to itbe its impacts legimate.constituents, sustainability members on propertyFurthermore, it mightwould have rights be not to while consideredand giverespect on the duethe actions agreement enforcementillegitimateconsideration of a particular toentered of other contractsto the constituencies. entityinto reconciliation usedby might a structurein bethe Therefore, considered transferof legitimacy they of effortsdo suchto not be tensionsproperty8.5. between resource. constituencies, more so in the context of enterprises that are founded Livelihoodon a common Support whicheconomic they are development. founded are And,managed. the success From this, of CBNREs is dependentCBNREs areori howcommonly well the established resources to upon attend to the twin objectives of promoting conservation and it follows that provision of other livelihood options is strategies,(2001)CAMPFIREMurombedziessential states the to reducingprogrammes are(2001that at uit levelsstates isthe not demandsare sufficientthatself likely evidentunless toon toencounter the revenuesthatoffset resource sharing the opposition generated perceived andwildlife the at revenueCBNRE fromthoseloss conservationfrom levels.asat communitydevelopment potential Along programmesthis individuallevel. benefitsthread In this Emerton livelihoodwill such regard, alone as othersufficientcombinationwildlife."lead natural to to Bonda promote net ofresources exceptional (2001:242)economic institutional which gaincircumstances has can for change.also realise communities emphasised Thisboth that implies marketthe livingfinancial the thatand insame the non-marketwildlife incentives diversification point areas by incentivesfrom stating or wildlifeofencourage CBNRM thatis aloneessential 'it programmes them are tolikely to raise conserve to intothe be is only under a incentives for institutional change." Implicit in all three quotations is the importance of ensuring support for 85 Thesethat,enterprisesa variety as would observed of comprise livelihoodis also with determined awildlife-based strategiesmix of market by to the promote communityor prevalence non-.market benefit-based enterprises, of related other supporting livelihoodapproaches the success strategies livelihood to of conservation. other (Ashley, strategies non-wildlife 2000). It foris suggestedthe based locals. meansconservation,businesses, of generating has economists been foreign sustainable have exchange often use seen (ibid).of tourism natural The CBNREsresourcesprivate sector asWhile - ahence route has the seenato conservationists waymacro-economic CBNRE to enhance establishment incentivesgrowthperspective and as for aa of establishing CBNREs, as nature-based tourism communitytourismlivelihoodspoor(ibid). at commercialThe the types fundamental ofcentre rural of tourismactivity of people CBNRE difficulty concerningventures and development ways with such product theseof asachieving perspectivesCBNREs and development, as the such is bestthat which have competitiveness theyfit betweenhavefailed have been to not giverural placeda major and duepeoples commercial theconsideration driving interests livelihoods force returns of behindto the andthe addspeople(2000:22)livelihoodsCBNRE that disempowered thereactivities. points as aredeterminants out manyIn thatturn by of'thethis alien such ofcommonhas the tourism examplesresulted behaviour gloomy developments in ina of picturelackNamibia, rural of ofunderstandingpeople. and tourismwhere disenfranchised Therefore, whitecase and studiestourism appreciationit is aroundnotfrom operators surprising their the of resources.' theworld have thatcentrality issimply Ashleyof local She of authorsestablishedKenya have (Sindiga, camps also made 1999),or lodges similar and in Belise communalobservations (Belsky, areas, with2000). oftentourism near enterprises a keyThe water main in Zimbabweresource advantage (spring (Murombedzi, of puffing or river). livelihoods 2001), Other at the centre of CBNRE development is that it allows CompanynegativelocalcarefulNGOs peoples' consideration thatimpacts and economic livelihoods Conservancy as towell bedevelopment (Ashley, (ibid).given representatives toAs 2000). both evidenced would the In positiveautomaticallythis and bysense Advisorsthe and negotiationsit negativeignores bring in Namibia, positive theimpacts thatflawed impacts,such occurred of assumptionenterprise an butapproach between explores development made has the the by allowed Lerato potentialmany on governmentamongmeasures2000).rural people Furthermoreothers, or tosubstitutesplanning hascall forbeen those tourismapproval. for to livelihoodsthoserequest development This could private hasimpacted be assistedprovided operators to be upon adapted in(Ashley, toensuringby seek development to 2000). meetlocal that leaders'theirIn local Namibia, are livelihood people identifiedapproval government are priorities beforesoinvolved that (Ashley,support,granting support in the developmentundertake(Ashley, 2000). in planning order to achieveand influence their livelihood tourism goalsenterprise (George, development Undated)."'Livelihood to suitstrategies their livelihood are the range priorities and combination of activities and choices that people make or termlivelihooddependent productivity options upon of external opennatural to support othersresources; (George, that andis economically Undated)."do not undermine Because and institutionally the livelihoodLivelihoods livelihoods sustainable;strategies are of, sustainable or are compromise maintain in a when continuous the they thelong- are: resilient in the face of external shocks and stresses; are peopleasstate their of haveownflux people capabilitiescomplex adapt livelihood alter to: evolvingduring strategies, their threats lifetimes based and (George,onopportunities, multiple Undated). Thatland-use, changing the development and livelihood diversification objectivesimpact of of risk CBNRE5 and across also is about jobs and income is an oversimplification, rural differentpositivelyseveral activities.livelihood and negatively, impacts. 'These aredirectlyAnd affected thirdly, and different indirectly.by tourism people Secondly, enterprise have different different Matchingdevelopment livelihood types tourism of inpriorities.' tourism manyenterprise different ventures(Ashley, development ways,2000) have plans to local livelihoods requires a good understanding researchersof people's livelihood and reports. strategies For example, and needs. Ashley Local (2000) people states understand that individual these farmers without in Torrathe intervention and Khoadi!! of 86 value,Hoas liquidity, conservancies drought inresistance, Namibia make cultural their value, decisions risk diversification, of ratio of goats estimated to cattle resource based on availability, account of and asset plantbudgetLahiff, materials constraints 2003; suchAshley, - although as 2000).medicinal not For expressed plants coastal and communities in fuel these wood, terms. harvestinglivelihoodTypical strategies of forest livelihood products, also strategiesinvolve etc (Ntshonathe of harvesting the rural and poor of include agricultural and livestock farming, collection of theirincomeruralintertidalbasedlivelihood incomedwellers generated resourcesenterprises strategiesfrom augment full from such time impactinvolve theirmicro-scale as waged fishincome positivelya combinationfor employment, sale spazathrough orand shops.negatively ofmigrantsubsistence building,these Skilled livelihoodremittances on brick andpurposesthe making semilivelihood activities. and skilled(Ntshona and pensions. And,optionsblock people andthe making. Others ofdevelopmentderiveLahiff, rural Ruraldo some2003;). communities. so peoples' through orof Some nature-all of Therefore,alleviationofnotimpacted CBNREs, only deter negatively and but negative development also are ensures pressures identified in these a wholisticonand areas.the supported resource support through base of livelihoods with other potential means. that to This contributesadversely way, livelihood affect effectively the support sustainability to poverty would it is important to match CBNRE development plans with local livelihoods so that those 8.5.1. There is overwhelming agreement among authors on nature-based enterprises that establishmentPoverty alleviation and Development thedevelopmentopportunitiesBerg,of main, CBNREs 2001; nature-based Wood,contributes provides for the1998; economiclocals enterprisesto Ashley, the to reduction opportunities,2000; are Gujadhur ofestablished poverty and and inin Motshubi, ruralmostin remote communal cases 2001; rural in areas Flyman,areas areas where (Murphree, with2001). there limited This is 2001; ais economic generalbecause, Van denlack in lift themselves out of poverty. Therefore, nature-based enterprise tourismandof access casual activities to employment, market conducted economy opportunities by the (Wood, locals for1998).(Flyman, the saleThese 2001). of economiclocal arts CBNREsand opportunities crafts, rarely as wellcome generate as in income the permanent form Thom of full cultural jobs time for more than a small portion of rural households (1-5%) throughentrepreneurseconomysecurein prime the socio-economic areaspresence creating and(Ashley, of othera nature-basedmultiplier status2000). non-tourism (Ashley, Earnings enterprises. related 2000). for those enterprisesThe withearnings jobs like helpare spaza also lift their partiallyshops households add recycled to income from within insecuregenerated the local to effect. Profits from ownership of enterprises by individual local tendandGrass-sellers, to tourism be smaller enterprises, craft-makers, relative to and waged fisherfolk, to neighbours employment, casual earning labourers these wages additional and fromothersCBNREs opportunitiestourism sell their also jobs. products create Althoughtend tocasual or benefit labour these earnings atoearnings higher tourists opportunities from selling grass, food, wood, crafts, etc. Acuadoryearspoorhavepercentage when peoplefew were other they investedof provide local optionscannot households ina forgrowfoodeducation, earning securitytheir than ownhealthcash netthe crops. (Ashley, asservices,full-time it enableslt is2000). jobsreportedradios, andthem Small outboard are that to amounts mostmake most motors important food tourism of casual purchases,and earningsforclothing income the poorer particularly (Wood, inearned Cuyabeno, people 1998). by inmany whodry -which ifinfrastructure, any accrues - other sourcesto theother community offacilities this type trust,such of income.providesas schools, This a substantial or collective any other boost income Incommunity mostto ais community normallycases projects. collective invested because In incomeKDI in there communityfor earnedexample, are few by the community from equity ownership of the enterprise, because of the remoteness of the area, community members have to travel far and incur extra costs to 87 marketobtain implements, is often problematic. building materials,Therefore, clothing,it is planned and tohousehold make use items. of this Transportation income to the totrust and to from provide the alleviatingcover,trustservicesome is of fordivided ofthese example, thepoverty trust goodsbetween amongtoschool in its the households members feesruralcommunity and households (in ait couple istheeither often process asdependsof not bagsanother enough creating of on grainprofit howto a change (Ashley, makingfew it is jobs)(Flyman, spent, livelihoodenterprise 2000). which The strategies or in 2001).value simply turn of dependsIf as butthisincome a enough non-profitincome on to the toin andnature-basedlocal development institutions enterprises and in processestheir have areas increasedfor - amanaging reflection the jointcapacity of a expenditure stronger of local social communities(Ashley,Training and 2000). andhuman tocapacity take capital. control building Above over that this,their occurs itlives has in the process of establishing and operating community Thisconsideringconservanciesandincreased Motshubi,recognition the that capacity are 2001;in has recognisedthe been earlyFlyman,of some nineties,translated by communities2001). government the intoFor government example,the to as influence government a significant did in externalnotNamibia, give playerstrategy themorganisations rural in tourism;forsuch residents, tourism recognition this(Ashley, planningis and a significant (Ashley, 2000;the whichemerging Gujadhur 2000). move has partnershipcommunities,included a considerable models and it basedis for element this on reasonthe of communityprinciple that some on consultation Build-Operate-Maintain-Transfer. communities (Ashley,The have value 2000). adopted of nature-based community The hope privateenterprises is that sector the in bringing local development is a key issue to local developmentcommunitytourism infrastructure at inthe communal end of developedthe rural agreed areas. periodby Thisthe (usually privatebeing so 15-25 sector it is fundamentalyears). partnerAs stated would to earlier,ensure become thethere sustainability the is general property agreement of of these the that CBNRE5 do contribute to poverty alleviation and enterprises beyond the subsidy 8.5.2.(donor funding support) phase. Subsidy havesubsidiesmoneyto help under industrygranted enable the or to consumersfree businesssupport operation an keepto obtainundertaking theof economic theprice products of held a commodityfactors to or be services in and the or publicconcernedcanserviceSubsidy also interest. low. be isat defined itpricesused is According also loweras in defined thetools than Conciseto forMolias they aincome (1984) sumwouldOxford of Dictionary as a sum of money granted from public funds communitythatinterest.beredistribution. described serves While ownedthe as Init publicmaysomeCBNREs, and be kind interest, operatedargued initialof subsidy that thefunding business thisfact as kind normallyisit isthatmodel ofprovided supportmany provided fail totoenterprises, is exhibitsupport not by subsidydonors properties an particularlyundertaking andbut another of investment sustainability fundingthose held to which agenciesinbe an inbeyond adoptenterprisethe publiccould the thosefinancialobservation,onlydonor continue ownedsupport support supportedand (subsidy)to (subsidy)operatedfunction by phase Saiafsky, byfortowards communities. as (Salafsky long achievingat aI.as (2001)etsome aI, the 2001; donorwarrants sustainability Wood, funding a critical 1998; of(subsidy) nature-based assessment Naguran, is provided. 1999). of enterprises, the Theserole Therefore, of enterprisescontinuousparticularly this willtowardsmonitoredhypothesis take achievingaction thethat to performance if conserve thepeople sustainability benefit and of a sustainablyfinancially number of CBNRE5. of from community-baseduse enterprises them.Salafsky etthat aIlt enterprises dependshould(2001) beconductedon statednearby over a thatnatural perioda study literature resourcesof to about test makes thethree they very limited reference to the potential role of subsidy As part of this study they established and years. As stated earlier, Salafsky et aI (2001:1593) concluded that "....it will at best take a number of 88 theyearsoutsidemanagement enterprise for most subsidy community-basedever and is to monitoring perpetually cover all itsactivities.enterprises required costs. In Thus, to toparticular, paybecome the for most the self-sufficient. truecommon costs scenario In(especially many cases,might for be itmanagement may one bein whichhard forand an it may be necessary to pay for good-quality operatedenterprisebasedmonitoring) enterprise enterprises, literature. of the development.enterprise". The and effect when of This thissubsidies isis reflectedthat areit is withdrawnnotby the dealt dearth with these Theofexplicitly reference enterprisesauthor when posits to subsidy establishing fail. that As the in pointed theissue community nature-based of out subsidy by has not yet been sufficiently thought through in nature- achievingthesurviveissueSalafsky withdrawal needof the subsidy et tosustainabilityaI beof(2001) subsidyisprepared not some treated of is wellCBN enterprisenormally explicitly in REs, advance and verywould those therefore forpoor. not thatthe survive Nevertheless,withdrawalwould has to notwithout be survive treatedof donor perpetualsubsidy areexplicitly. funding not hassubsidy, identified (subsidy).a role and andto thoseplay Because preparation towards that thiswould for 8.6.political, ecological and social sustainability. However, examplesGenerally, of success the sustainability in all fourSustainability dimensions of CBNREs is measured along four dimensions, that is, economic, harmfulofinevitablybeenremains reported established compromisesincomplete meant cases that (Kontogeorgopoulos,where and some(Kontogeorgopoulos, patchythe tradeoffs positive in many consequenceshave 2005). parts to2005). be ofOften, themade ofmajority achieving enterprise(Flyman, world success 2001). development where Nonetheless,in nature-based some have of these offset there enterprises dimensions the are potentially a number have has 8.6.1. A CBNRE is considered to be economically sustainable if it is institutionally sound and maintains aEconomic sustainability benefitseconomicallymembersconsistent flowof sustainablethe of localincome community nature-basedto cover all and its enterprise operationalprovides distributesother costs, collective offers benefits continual benefits widely rewarding andto the equitably, community. employment and suchremain Anto in the hands of the locals rather than outside individuals or corporations modelsunsustainable.Salafskymodel(Kontogeorgopoulos, fail often etto achieveaI,display While 2001, most 2005).this De issituationof BeertheMostthese case, enterprises and features;after enterprises Ellifee, the asfunding which such which adopttheyphase adoptare the (Nagurari, referred community the community to 1999; as owned economically Kontogeorgopoulos, private and operated sector sustainable partnership business 2005, (De 1997). Hence, they are described as economically Beer and Elliffee, 1997; Bond, 2001).8.6.2. Ecological sustainability managementestablishmenton which they systems aregoes founded, hand and intools. ensuring glove In withmost ecological the cases development the sustainability number and of visitors isimplementationBecause of great and CBNREsnecessity. the types of soundare ofTherefore, tourismbased environmental on activities CBNRE some goods and services supplied by the natural resource base that can take place are determined by the conservation goals set for the resource. CBNRE activities are 89 orthen to closelyensure monitoredthat activities for early do not detection detract offrom any the negative set ecological impacts goalson the for ecological the resource state baseof the (Flyman,resource environmentalthesettingthresholds2001). commonly Becauseecological beyond appliedmanagement of goals incompletewhich andapproach ecological monitoring systems knowledge (Flyman, sustainability resourcerequires and 2001; lack usea certainWood,becomes of to agreementensure 1998).level seriously achievement of However, evenknowledge threatened among ofeffective theseand ecologists (Grima,skills goals implementation and appearson et theshouldaI., critical2003), to be of demonstratedTherefore,institutionalsustainablecomplemented capacity use the by ofcapacity promotionresources. and skills to ensure ofto Without educationeffectively sound NGO environmental implementand or awareness Public environmental sector management on support,the importance management (De rural Beer communities andof conservation(Naguran, Elliffe, 1997). lack 1999). and theOn without support, community owned and operated enterprises have not sufficiently ecologicalcommunity.sectorforthe environmentalother partner hand base A CBNRE tookcommunityand management inupon whichthat himself privateis the involved (Wood, environment sectorto promote in1998). activitiespartnership is Kontogeorgopoulosenvironmental being that enterprisescarefully do not leadeducationmanaged have (2005)to steady demonstrated is andreports considered or awareness rapid a case degradationsufficientto wherebe in ecologically his acapacity partner private of the sustainable (Grima, et aI., 2003;8.6.3. Flyman, 2001; Kontogeorgopoulos, 2005). Social sustainability 2000).uponhopenorms, CBNRE forwhich social the communityfuture establishmentcohesion, (Kontogeorgopoulos, harmonymembers and operation and draw cooperation. in2005). processespursuit Furthermore, ofThese their are aimedgivelivelihoodThe these rise atfundamental tostrengtheningattributes and individual development formobjectives self or the reliance,improving social goals of CBNRE resourcespride(Ashley, these andestablishment include promoting local traditions values and whento andimprovementsocialbe agreementevaluated Elliffe, resources 1997). in against that these withinWhen community featuresthe aevaluated socialcommunity. appears owned sustainability against andHowever,to be theoperated determined criteria same achieving criteria,enterprises(Van by denthe the the businessBerg, social communityare 2001;potentially sustainability models Naguran, private applied.the sectorbest demonstrated1999; Thereperformers partnership De appearsBeer, by haverespect(Kontogeorgopoulos,socialenterprises been status to promoting applied have and socialdemonstrated (Murombedzi, social2005). mobility sustainability Furthermore, mixedamong 2001; successes, individualsSindiga, where there arecommunity 1999; for atmany the example, Belsky, expensecases private 2000; Seathat ofsector demonstrate canoecommunityGujandur partnership is reported and cohesion limited Motshubi, enterprise to successes haveand 2001). harmonyfostered models with As theindicated sustaínability by the of Sea an enterprise. canoe example,8.64. in the long run, lack of social sustainability poses serious threats to Political sustainability buildingandautonomy, direction that sovereignty, occursof development in the decision-making process projects of establishing(Kontogeorgopoulos, power, local and participation operating 2005).The community With politicaland thiscommunity sustainabilityin nature-based mind, controltraining of overenterprises andCBNREs initiationcapacity is is measured against the extent to which they encourage theirinvolvesectormeant areas operators,involvement.to the (Ashley,increase private some 2000). thesector An capacity examplecommunities Becauseso as of toof local promotethisof have the casecommunities domineeringopted effective is the to Dqae-qaremanage toparticipation attitudetake and control game (Ashley,operate in over farmdecision their2000) theircommunity enterprises makinglives of some and which by developmentof withoutthe the opted locals private private not and into local control of the enterprise (Gujadhur and Motshubi, 2001). While community owned and operated 90 performingprivateenterprises sector arepoorly partnership supported on this inenterprisesaspect order (Murombedzi,to strengthen have recorded these 2001; mixed political Sindiga, successes sustainability 1999; withBelsky, mostattributes, 2000; of such theGujandur enterprises community and whichdoessustainability.andMotshubi, localscontrol benefit 2001).have of some Seathe no It enterprisecanoe shouldeffectivecommunity is be a participationleads classicstated members, to examplethat tensions lackin disgruntled decision-making. of that aneffective enterprisetend members to participation undermine perceivedBecause of the bythe ofcommunityto the this,beother localscontrolled despite dimensions inhave decision-making the by embarked foreignersfact of thatCBNRE it on in claimquasie-caseactivities successes that of are a community underminingin all four privateof them.both sector ecological Patchy partnership and and partial social arrangement. successessustainability.What is apparent involving Unfortunately, is tradeoffs that in terms sea sums canoe of theseup isthe afour dimensions of sustainability very few CBNREs can behindnotobservationachievedsuccesses mutually CBNRE on recorded requiressomereinforcing establishment dimensions further on something the investigation subject of is sustainability dependentthat of one nature-basedbecause would haveon itsuccessfulexpect suggestsbeen enterprise toaccompanied see, thataccomplishment especially these development. bydimensions compromises because of Notably,the of achieving sustainabilityafore-described on others.successes the aimsThis are fordimensionssustainability.8.7. further research. sustainability lt should be feed added back that and thedirect extent change to which in enterprise successes establishment and failures and achieved supportDiscussion is on a matterthese and conclusion enterprisesasbenefitsis the that main these of andeconomic different CBNREs service valueincentive varyenterprises. and in sizes;forform, promoting andhave fall different withinbiodiversity two perceived broad conservation categories,valuelt is evident to andtheir that that'development'. beneficiaries, is, in value the majority adding provideAlso worldcommodity evident varying global donor agencies have supported CBNRE establishment lt is notable that following on support funding for CBNREs, bysuggestingecologicallyeffortenvironmental this to literature find that and business practitionersit politically). isreview, a living models despite laboratorylt and is becausethat researchers the are of amount ecotourism oftruly such alikesustainable of concerted experimentation havedevelopment experimented onefforts all (Wood,four that that criteriaEcuador with is1998). being different (economically, hasHowever, carried attracted approaches out,as evidencedcomments CBNREsocially, in an valuescontrolsustainability andand participation norms has been, for so securein far,decision about and making; compromisesrewarding some employment leveland tradeoffs. of social and Communities,cohesion, secure and benefits somefavoured thatof their by accrue aestablished whole to therange of other factors, and who are willing to tradeoff: full networks,sustainability.investorscommunitiescommunity or and levelchoose whoSuchimproving structure either tocommunities operate socialbecause would and cohesion have engagemanageof their greater and in unfavourableenterprises acooperation partnershippotential on forcircumstances theiramong enterprise strengthening own community have with cannotto sharedthestrive members. private attract to values achieve sector.privateEffective and enterprise norms, Thosesector local oneconomicareas.thuscontrol, all enabling four However, autonomy benefits.dimensions them in and Therefore,the to of full becomelong sustainability participation run, a needchampions such still described attributesin remainsdecision-making of natural inare to this findcompromised resourcedocument. enterprise improve management themodelsby theself-esteem inability that andwill to demonstrateofdevelopment continuallythese communities successprovide in their 91 performance,been demonstrated. those impacting While focus on thehas other tended dimensions towards thoseof sustainability characteristicsIn this document such asthat the distinct impact political differences on andeconomic social that characterize different business models reviewed have haveactivitiesownedaimeddimensions been atand thatcontributing dealt operatedhave are with. eithernot bybeen to directly localimproving dealt communities. linked with the orto economicnotany directly However,greater sustainability linked detail. aspects to The CBNREs such mainof CBNREs, as reasonand legitimacy, subsidy beingparticularly are supportthat cross-cutting this those for research livehood that and are is establishment,differentenforcementis because types of of itsmanagementof contracts legitimaciesimpact onthrough andthe is operation.functioningimportant which rights so of that areinstitutions, legitimationtransferred. negotiationThis isBecause managed review of ofhas propertythismore clearly an explicitly understanding demonstratedrights, in and enterprise on of that the the legitimacy impacts on the sustainability of CBNRE5, This livelihoodimpactsopportunitieslivelihoods on support has current for been themeasures and highlighted.rural future poor, is a livelihoodnecessary often,Apart fromtheir complementactivities thepositive fact that ofimpact tothe CBNREs achieving community. is notFurthermore, in sufficiently CBNREthemselves Therefore, sustainability.in greatthis aim document, toattendingto createoffset As indicated, livelihoodnegativethe to otherimportance of adopting an holistic approach in dealing with rural Thisotherhas is authors aindicated role tohave play by supportedlimited in supporting reference this view. biodiversity to the concept conservation in the literature. throughThe Nonetheless,role supporting of subsidy CBNREsit appearsin supporting operation that subsidyCBNREs and has not been sufficiently given the attention it deserves. contractsliterature.management. determine In this However, framework the sustainability it is suggested it was postulated of that CBNREs. this isthat one Indeed institutions, particular what issueIn propertyhas conducting emergedthat rights,requires this from transaction literaturefurther this reviewresearch. review, costs is ananda conceptual framework was developed to guide the review of relationshipcosts,economicindication and of sustainabilitycontracts) requiresbetween a strong further dimensionsandrelationship or economic empiricallack thereof. ofbetween institutionalsustainability testing lt theseis and therefore sustainability analysisdeterminants of CBNREs. concluded so that (including However,and a compelling thatenterprise rules,based in the property case sustainability, oncontext this is presented. rights,review, of CBNREs, particularly transaction there thisis a

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Sub-Saharan Review Africa of south in Devlin, african J. environmental (Ed), Ecotounsm lawsand Development Southernregulating Africa, estuaries.in Eastern Weaver Press, Harare, Zimbabwe, pp. 1-28. SPANINKS F, VAN BEUKERING P (1997) Economic valuation of mangrove ecosystems:Environmentlimitations.Enact international. potentialand Development, and London Institute for Environmental Studies, Vrije Universiteit: 40 CREED Working Paper Series. London, Amsterdam: International Institute for STEVENS, T.H., BELKNER, R., DENNIS, D., KITTREDGE, D. & WILLIS, C.63-74.contingentpp. (2000). Comparisonvaluation and of conjoint analysis in ecosystem management. Ecological Economics 32: 99 TARA GUJADHUR, C. M., ELVIA VAN DEN BERG, MICHAEL VOSA FLYMANBased (2001). Tourism Community- in Botswana. Enroprint Meinema. TURPIE,TARA, G., J.K. MOTSHUBI, (1995). Prioritizing C., VAN DEN South BERG, African E. AND estuaries FLYMAN, for conservation: M. V. (2001). Community-Baseda practical¡n Botswana. example Enropnnt Tourism using Meinema. TURPIE, J.K. (2004a). Current status of estuaries, their protection and threatsbiodiversity.proposedwaterbirds. to their biodiversity,goals Biological In: Breen, for conservation Conservation C.M., Adams, and 74: J., 175-185.guidelines Batchelor, for A., a Cowley, strategy P., for Mameweck, the protection G., ofMcGwynne, estuarine Province.management1246/1/04.Niekerk,Mckenzie, VoL L., M., ofIL Wood, EasternestuariesBgulube, A., Cape Lamberth,P.,in South Paterson,Estuaries Africa, S., Management A.,Boyd, with Sihlophe, A.a particular & Morant,Research N. aljaard, emphasis P. Programme. Protocols S., Turpie, on the contributing WRCJ., Eastern Uys, Report A.C., Cape to No. vanthe TURPIE, J.K.J.k. (2004c).(2004b). TheSouth role African of resource Spatial economicsBiodiversity in Assessment, the control of Technical invasiveAfrica.component Reportalien South plants Vol DEAT: 3:African ¡n Estuary South SAN Journal BI. of Science 100: 87-93. TURPIE, J.K. JK., (2005). ADAMS, Priority J.B., estuaries JOUBERT, for conservation A., HARRISON, on the T.D., Wild Coast,COLLOTY, SouthWHITFIELD,for B.M.,Africa. the WildMAREE, Report Coast A.K., to R.C., ConservationCSIRWOOLDRIDGE, and T.H., Sustainable LAMBERTH, Development S.J., TALJAARD, Project. l4pp. S. & VAN NIEKERK, L. TURPIE, J.K., CLARK, B., KNOX, D., MARTIN, P., PEMBERTON, C. & SAW, C.biodiversitymanagement(2002). (2004). Assessment Improving rating and waterof Souththe of allocation.the African conservation Waterestuaries. SA. priority Vol28: 1.191-206. status Contributions of South to African information estuaries requirements for use forin TURPIE, J.K. & HOSKING, S.G. (2005). (editors) Proceedings of a national economics121theworkshop pp.implementation ason aresource tool offor resource the management directed andMeasures conservation for estuaries. of estuaries WRC in Report South no.Africa. 1247/1/04. Riviera TURPIE, J.K. & JOUBERT, A.J. (2001). The recreational value of Sandvlei. In: TURPIE,Area.VANHotel, ZYL, A pilotVeldrif,J., H., JOuBERT, studyHARDING, 10-11 to Marchdemonstrate A., B. & 2005. LEIMAN, the A. application 2001. Valuation of environmental of open space and in theresource Cape Metropolitaneconomics TURPIE, J.K. & JOUBERT, A.J. (2005). Estimating the recreational use value of ofMetromethodsestuaries: the South-east.Knysna for a casethe estuary. assessment studyReport In toTurpie, the of City open J.K. of &spaceCape Hosking, Town. values S.H. I O4pp.in (eds) two case Proceedings study areas: of a nationalMetro South workshop and TURPIE, J.K., JOUBERT, A.R. & MANDER, M. (2000). Framework and methodologyAfrica.economicson forresource Anchor incorporation intoEnvironmental economics Resource of as DirectedConsultants. a tool for Measures the management and the strategic and conservation adaptive managementof estuaries in of South water 100 resources in South Africa. Report to the Institute of Natural Resources and Water Research TURPIE, J.K. & LOVE, V.C. (2000). Avifauna and human disturbance on and aroundtoKnysnaCommission. Chris Thesenestuary:Mulder & Island,implications Associates. for the island's marina development and management plan. Report TURPIE, J.K. & SAW, C.E. (2005) Estimating the existence value of estuaries:AnchorresourceKnysna a case Environmental estuary. economics study ofIn theTurpie, as Consultants. a tool J.K. for &the Hosking, management S.H. (eds) and conservation Proceedings of of estuaries a national in workshopSouth Africa. on TURPIE, J.K. & VAN ZYL, H. (2002). Valuing the environment in water resources SARDC,environmentalmanagement.110, in: World Hirji, PpsustainabilityBank: R., 85- Johnson, Maseru/HararelWashington in P., water Maro, resources P. & Matiza management DC. Chiuta, T. in (eds) southern Defining Africa. and SADC, mainstreaming IUCN, VAN NIEKERK,DEN BERG, L. E. & (2001).TALJAARD, At the S. Dqae (2002). Qare Recommendations game farm in Ghanzi on a inframework Rozemeijer, for Meinema,BasedeffectiveN. (Ed), Tourism Community-cooperative pp. 35-58. in Botswana: The SVN experience in three community-tourism projects, Enroprint VAN ZYL, H. & LEIMAN, A. (2005). The costs and benefits of the rehabilitation of theRiverCapegovernance Lower Estuariesestuary Silvermine of in South management Cap AfricanTown. Pp. estuaries.Programme, 94-1 05 in Co-operative Turpie, J.K. governance& Hosking, sub-project.S.G. (eds). Proceedings of a CSIR Environmentek Draft report 8 July 2002, Eastern VON HASE, A., ROUGET, M., HELME, N. & MAZE, K. (2003). A fine-scale conservationLowlandsestuariesnational plan workshop inRenosterveld. South for Cape Africa on resource SANBI Conservation economics asUnit, a toolReport for 2/03.the management and conservation of WI-IITFIELD,WHITFIELD, A.K. A.K. (2000). & WOOD, Available A.D. scientific(2003). Studies information on the on indMdualRiver-Estuary estuarine Interface systems.Eastern577/3/00. Region WRC Cape of Report Selected Estuaries. no. Water Research Report, WRC Report No. 756/1/03. WOOD,WILLIS, KGM. E. & GARROD,(1998). Meeting G. (1991) the Global An Individual Challenge Travel-Cost of Community Method Participation of Evaluating Journalin ForestEcotourism: of Recreation. Agricultural Case Economics 42: 33-42. WYNE, A. T. AND LYNE, M. C. (1995). Communities, institutions and natural resources:ofhttp:www.tcri.org.Studies case-studies An assessment from KwaZulu-Natal. Development Southern Africa 12, 649-667. and Lessons from Ecuador, The Nature Conservancy, Arlington, Virginia, 101 IO. ANNEXURE A PLANNINGPHASE 1: ANALYSIS ACTIVITY: ENVIRONMENTAL ANALYSIS - lOP DEVELOPMENT PHASES controlledproblems management.and threats into consideration as well as environmentalToPurpose ensure assets that which municipal require development protection or strategies and projects take existing environmental Minimum Requirements:A list(location, of major people environmentalexisting affected, environmental magnitudethreats and problems of risks problem, (including with causes). a short disaster description risks) with of aeach short of description. the problems Hints for StructuringandthanPreparing threats athe topic Process withinforan environmentala workshop the municipal event. analysis area All shouldavailable is a task be which informationconsidered involves onas investigation crucialbackground environmental andinformation desk-work, problems for ratherthe analysismunicipal-levelMostPrioritylt is up category intotoIssue. the account) workshop IDP B Representativemunicipalities whether dealing or with not Forumwill "Municipality-Level a notcertain to be decide inenvironmental a position (taking Analysis" the to issue doinformation (1/4). or will initiate become of athe comprehensive environmentala municipal Suggested Institutionalenvironmentalmunicipalityan urgent Arrangements/Responsibilities need andstudy initiatefor to more obtain a dIstrict-wideinformation, additional analysisinformation local municipalities on crucialas part environmental of may their join IDP their process. issues. efforts Should with thethere district be districtProvisionandproblemsOne promotionof councils,the and oftechnical new risks,agencies. unless information basedofficers a category on of available theshould municipality B Municipality be reports done can andon feels compile aconsultation district-wide the needexisting withand scale information environmentalhas and the capacitiesbe on initiated environmental stakeholders to by carry the Note:Involve environmentalout stakeholdersa specific study and on specialists a specific in environmental the lOP Representative issue in their Forum. own area. focuspollutionhowever, on discussing or be risk workshops of suchfloods crucial or forestwork issues groupsfires) rather if onthey than certain are being identified specific used as forburningDo municipalproviding not makeenvironmental priorities.information. environmental Work issues groups analysis (such should as a topicair for a workshop or a work group session. There may, 102 PLANNINGPHASE 2: STRATEGIES ACTIVITY: LOCALISED STRATEGIC ENVIRONMENTAL GUIDELINES are applied when strategies are designed and projects are planned.ToPurpose ensure that the principles of Chapter 1 of the National Environmental Management Act of 1998 be21, represented which gives in effect 3 - 5 topages the NEMA accompanied principles, by a and diagram/plan. makes themAMinimum concise specific Outputdocument to the municipality.Requirements: that demonstrates This should the application of the NEMA principles and Local Agenda Legislation/PolicyLocalPrinciples Documents Agenda of Chapter 21. 1 of the National Environmental Management Act. Relevant Guidelines/PrinciplesProvincialNational Environmental Environmental Management Implementation Plans. Plans. thedevelopmentpossibility environment: of process present meaning and future that generations any utilisation to satisfy of natural their needs. resourcesMunicipal This should relates strategies notavoidingto the negatively and following projectspollution affect aspects haveand the degradation to of comply with of the the environment; principle of an ecologically sustainable consideringrights;miriimisingavoiding waste, and the consequencesremedyingensuring recycling negative of the or impactsexploitationdisposal on in the aof responsible non-renewableenvironment manner; and natural on people's environmental - ecosystems;payingavoidingresources; specific jeopardising attention renewable to sensitive, resources vulnerable, and ecosystems; highly dynamic or stressed rent knowledge about the consequences of decisions and actions.Attempts to consideravoidingminimising such principles disturbance loss of inbiological developmentto cultural diversity; heritage planning and sites. need to be aware of the limits of cur andrelevant specific to which in that types regard of environmentalresource utilisation guidelines and to can which adequately locations.TheLocalised Nature inform Only Strategic ofstrategy by Localised being decisionsGuidelines sufficiently Strategic and have focused projectGuidelines to indicate which of these general environmental principles are designs. - The guidelines maya include: list of locationsespecially which endangered may require or degraded restrictions resources; for utilisation; 103 - a list of economic activities which needs special attention with regard to environmental impact; - PHASE 3: PROJECTSrisksand of environmental disasters. arephase designed during which canthe municipalitybe used for hasimplementation. to ensure that Guidance concreteThis is and provided section sufficiently on provides issues specificBudgetIntegrated suchdetails project determinations as: technicalon proposalshow to and structure and financial allocations a project taskand isteams described as the nuts and bolts ProjectSettingParticipationDesigning targetsindicators project and proposals outputs PLANNINGPHASE 4: INTEGRATION ACTIVITY: INTEGRATED ENVIRONMENTAL PROGRAMME - ToPurpose: contribute to a healthyenvisagedurgent environmentenvironmental projects haveby issues ensuring no negativeare that:adequately impact addressed;on the natural and environment. A summaryMinimum statementRequirements:aConsideration statementshort of 2-3 reference pages of ofthe theandto projects theStrategic a diagram/plan,results and Guidelines oftheir the activities environmental that on includes: the that Environment significantly issues identified (2/3); affect thein the environment; Analysis Phase; ManagementConsideridentificationNEMAdescription principles the of of Plans relevantthe those and manner and projectsthe information Environmental national in whichthat environmentalrequire ofthe the Implementation municipality an national EIA. norms and will Plans.and provincial ensure standards; that departments' its and projects complyEnvironmental with the Hints for Structuringprocedures.guidelineRefer the to the Processdocument, Environmental for the categoriesConservation of activities Act of 1989 that andrequire the ariEIA EIA Regulations and related of application1997 and Check all project proposals, in relation to othe outputs of the analysis and strategyonAreIs guidelines:there the thethere environment, environmentalcompliance approaches withwith issuesthat thea viewidentify, strategic of tothe minimising analysispredict guidelines? and addressed? negative evaluate impacts the actual and maximisingand potential benefits? impact environmentalSummariseGive feed-back all programme.environmentally to Project Task relatedTeams measures,in ocase of non-compliance aspects and activities or insufficient as part EnvironmentalDoesofconsideration. one the conclusive Integrated Implementation Environmental Plans? Programme adequately consider the provincial 104 - Ensure that the recommendationsRepresentativePresent the programme, Forum. of the IDP together Representative with Forum are incorporated in the final comments and recommendations, to the IDP project proposals and in each ofcompilationA the senior Integrated municipal of the Sector Integrated official Programmes. in Environmental chargeSuggested of environmental InstitutionalProgramme. Arrangements/Responsibilitiesaffairs should be given the responsibility for the environment attend the workshopsresourceWhere of athe personmunicipality IDP Representative may be does consulted not Forum havelt toshould assist capacitiesin Phase be in ensureddrafting 4. in the thethat field Integrated the of legitimate environmental Environmental community planning, Programme. and residents' a specialist representatives (or advocates) of dealingissues.projects with ¡n the context. priority Thus issues. it is a tool for main-streaming, rather*Note: Thethan Integratedbeing an add-on, Environmental for environmental Programme is not lt ¡s intended to capture the environmental contributions from all the IDP an additional programme besides the projects

105 11. ANNEXURE B- SUMMARY OF CAPACITY ASSESSMENT FOR SOME EASTERN CAPE COASTAL MUNICIPALITIES

Environmental Institutional Physical Applied Levels of Planning Tools Attitude Structure Capacity Competency Governance

Amatole District Good Environmental Dedicated Limited Limited Completed: Municipality section falls within environmental experience State of Environment Report social development manager, but Draft Coastal Zone more capacity Management Programme needed Draft Environmental Management Plan/System

Cacadu District Various. Viewed as No dedicated None None Limited Were planning to do a State of Municipality conflicting with environmental Environment Report two years development. section ago, but still not funded Environmental falls within the PIMS OR Tambo Not known No dedicated None Limited Limited About to embark on an SEA District environmental funded by DBSA to provide Municipality section input into the SDF Other Wild Coast Initiatives will provide extremely valuable information for planning purposes Buffalo City Very good, but Integrated In addition to Good and Increasing Completed Local viewed as secondary Environmental Environmental increasing State of Environment Report Municipality function by some and Management Unit Manager, two Coastal Zone Management Plan obstructing progress sits directly der the new positions Draft State of Sanitation Report City Manager's have been funded STEP being used and integrated office and appointments well. made SDF includes detailed environmental input including estuaries. Fine-scale conservation plan being developed. Great Kei Local Poor No environmental Limited Limited Limited SEA funded by DBSA Municipality department and Technical completed and will inform the environmental role. manager SDF, with emphasis on the undertaking coastal zone. planning, STEP used in SDF

106 Physical Applied Levels Environmental Institutional of anning Tools Attitude Structure Capacity Competency Governance

engineering & environmental role.

Kouga Local Poor. Planning and Limited Good to average, Limited STEP info is being used. Municipality Development & but certain skills Consultants are obliged to Social and require include STEP info in reports etc. Economic improvement SDF completed for 2 of 3 Development and (e.g. map regions by consultants Human Resources reading) Directorates exist (i Environmental Officer). Ndlambe Local Not known No dedicated None Limited Limited ist Draft of SDF available at end Municipality environmental February 2005 section Environmental sits with Planning Mbhashe Local Not known No dedicated None Limited Limited About to embark on an SEA Municipality environmental funded by DBSA to provide section input into the SDF, with emphasis on the coastal zone. Ngqushwa Local Not known No dedicated None Limited Limited Recently initiated a DBSA Municipality environmental funded SEA to inform the SDF, section with emphasis on the coastal zone.

107 Introductory Course to EstuarineManagement in South Africa Lucilte SchonegevelLara van NiekerkSusanPrepared Tatjaard by: 7599, South Africa P. 0. BoxStellenbosch 320 CSIR e II of EasteíIÍ Cape ogramm. CSIRINRE/ECO/ER!2007/001 3/C WaterPublished Research by: Commission GEZINAPrivate Bag X03 South0031 Africa Copyright reserved source.No part of this publication may be reproduced in any manner without full acknowledgement of the This report should be cited as: ManagementVAN NIEKERK, in SouthL, TALJAARD, Africa. Training S and CourseSCHONEGEVEL, Manual. L (2006). Introductory Course to Estuarine TRAINING COURSE MANUAL page i 1.Contents INTRODUCTION I 2.12 TotalWHY economic DO WE value VALUE concept OUR ESTUARIES? 3 3 2.42.32.2 AdditionalEconomic Information valuationtrade-offs techniquesin estuary conservation and development 698 3.23.1 GeographicalDefinitionHOW of DOESan Boundaries Estuary AN ESTUARY WORK? 10 10 3.53.43.3 EstuarineSpecial Ecological Classification Features 131211 3.6 AdditionalKey Biophysical Information components3.5.23.5.1 BiologicalPhysical (or (or driving.) response) components component 151316 4.14. LandACTIVITIES Use, Infrastructure THREATENING and Development ESTUARIES 17 17 4.44.34.2 WaterLegalExploitation quality and Institutional and of living quantity resources Structure 1918 4.64.5 AdditionalWhy doLEGAL we Information need MANDATEto manage an estuary? 21 20 5.35.25.1 WaterLandStrategic quality use Resourceand and Infrastructure quantity Objectives development 242322 5.55.4 AdditionalExploitationGOVERNANCE Information of living resources AND MANAGEMENT 26 25 6.36.26.1 WhatJoint is decision-makingmanagement?Governance? platforms 2726 6.3.1 Integrated Development Planning (IDP) TRAINING COURSE MANUAL page ii 28 December 2006 31 6.3.36.3.2 6.3.3.36.3.3.26.3.3.1 FrameworkStrategic Adaptive under NationalManagement Estuarine Approach ManagementVision PlanningManagementProtocol and objectivesand strategiesImplementation 363534 33 6.56.4 AdditionalGeneric management Information approach 6.3.3.56.3.3.4 AssessmentMonitoring and evaluation 36 3839 7.1L VisionSUPPORTING and Objectives MANAGEMENT TOOLS 40 41 7.1.57.1.47.1.37.1.27.1.1 RehabilitationGenericBiodiversitySustainableResource Co-management Directed useprotocol protocol protocol Measures System Methods 44434241 7.1.107.1.97.1.87.1.77.1.6 Thresholds LimitsMulti-CriteriaBiodiversily-basedStrategic ofAcceptable Environmental Analysis Enterprise Change Assessment Development ('SEA,) Potential Concern 474644 7.2 Management strategies7.1.137.1.127.1.11 and StakeholderDriver-Pressure-State-Impact-Response Planning involvement Approach Strengths- Weaknesses-Opportunities-Threats ('SWOT,) of 484749 7.2.47.2.37.2.27.2.1 SystemSpatialIntegratedEstuarine (LUMs)Development zoning ManagementDevelopment scheme Framework Plans Plan (IDP)(EMP) (SDF) and Land Use Management 5049 7.3 Implementation 7.3.27.3.17.2.5 LicenceEnvironmentalCatchment A uthorisation Management Impact Assessment Process Strategies for EL4land-derived wastewater to the marine 5151 7.4 Monitoring 7.3.47.3.3 environmentCriticalCarrying Limits Capacity for Activity/DevelopmentAnalysis (CCA) 525153 7.4.47.4.37.4.27.4.1 NationalMonitoringMeasures,)ResourceCWAC Linejish MonitoringMethod Protocol Survey (Eastern Procedures Method Cape for Estuaries Estuaries Management (Resource Directed Programme) 555453 7.58. EvaluationREFERENCES7.5.1 State of the Environment Reporting 575555 TRAINING COURSE MANUAL page iii Tables AnnexureAnnexure A B Important Infrastructural Needs Useful Environmental Data and Information Sources Table 2.i (TurpieDifferentSummary et types ofaI. the 2006) of goods valuation and methodsservices providedand the types by estuaries of value they are typically used to measure 84 FigureFigures 1. economicThe relationships value' typology between of biodiversity, values (Turpie the etconcept aI. 2006) of ecosystem goods and services' and 'total 6 Figure 3.2. versusGeographicalHypothetical indirect andrelationship boundaries non-use betweenvaluesof estuaries (Turpie the level et aI.of estuary2006) development and the magnitude of direct 7 Figure 6.5.4. IllustrationThe difference of the in relationshipvariouswater levels estuarine between and salinitybiological policy penetration andcomponents legislation between governing low tide Strategic and high Resource tide 1614ii Figure 8.7. PhasesObjectivesComparison in theand between IDP key process activities the processes (McGwynne and development of DFand formulation McKenzie that threaten 2006)and estuaryestuaries management. (McGwynne 2821 FigureFigure 9. 10: TheLinksand McKenzieadaptive between decision 2006)different making/problem types of planning solving that affect cycle estuaries(Hay 2005) (Turpie et aI. 2006) 323129 Figure 12. ii. ProposedAfricanAn estuary estuaries National management (modified Management protocol from RogersProtocol that incorporates and for BiggsEstuaries 1999)the monitoring protocol proposed for South 3733 TRAINING COURSE MANUAL page iv Acronyms CWACCMSCM4 Co-ordinatedCatchment Management Waterbird Counts StrategiesAgency DWAFDEATEMPECA EstuarineDepartment ManagementConservation of WaterEnvironmental Affairs PlanArea and Affairs Forestry and Tourism LUMLACIDPEPA EstuarineLandLimitsIntegrated Use of Protected Acceptable ManagementDevelopment Area Change Plan NEMAMCMMPA andNationalBranch:Marine Tourism Protected MarineEnvironmental and Area Coastal Management Management, Act (No. Department 107 of 1998) of Environmental Affairs NWRSRDMPSIRNWA ResourcePressure-State-Impact-ResponseNational Water Directed ResourcesAct Measures(No. 36 Strategiesof 1998) SWOT SEASDFSoE Strengths-Weaknesses-Opportunities-ThreatsStateStrategicSpatial of Development the Environmental Environment Framework Assessments

TRAINING COURSE MANUAL page y This introductory training course on Estuarine Management in South Africa forms INTRODUCTIONpart of Phase Il of Thethebuilding Eastern material programme Cape included Estuaries infocusing this Managementtraining on local course authorities Programme, (Objective and stakeholders.3)which required the development of a capacity is primarily based on issues highlighted by stakeholderEstuariesdiscussionsObjectives Programme:workshops 1, with2 and local 4 conducted(of Phase authorities Phase I Ilduring of andthe Phase Eastern stakeholders. lof Cape this programme. Estuaries Issues raisedResearch as Programme),part of the Eastern as part Capeof the were also included by means of a review of the proceedings of various As part of this initiative the following activities were undertaken: AnObjectives Assessment I and Workshop 2 were identified where important and where issues specific that capacity may not requirements have been highlighted ¡n the Eastern in incorporationdeveloped,DraftCape trainingin terms focusing of courseof estuary information/knowledge/skills materials, on management training based of municipalinto on the the gapsIDP outcome officials process; were discussed;of the Assessment Workshop, were in estuary management and the Thereafter,A Trainingrevisionsofficials fromWorkshop andthe Buffalo finalrefinements trainingwas City held Municipality as course proposed material and at other the authoritiesTraining Workshop ¡n the region; (and Steering Commiftee at which the draft training course material was used to train was prepared, taking into consideration The training course material includes the following: ShortMeetings); Training Course (PowerPoint Presentation) aimed at senior municipal officials (1-2 days);groundFullhou rs);Training management Course (PowerPointof estuaries, whichPresentation) could also aimed be used at officials as an individualinvolved in training actual toolori-the- (1-2 TrainingandInstructor'saddressed Course in Notes the Manual Training (MS Word that Modules document)includes (MS Wordmore that givedocument) detailed guidance information to the presenter/s on different of the aspects course; The course was developed in a modular fashion to allow for more flexibility. ModulesA CDManual containingon theand following Instructor's the Interactive Notes. PowerPoint Presentations, as well as the Training Course topics are included: TheInformation value of estuaries; on how estuaries work; TRAINING COURSE MANUAL page 1 CA PACITY BUILDING .P.RO ActivitiesIntroductionGovernanceLegal mandate; threatening toand management management; estuaries; tools. and andparticularselectAlthough includes specific needs.the extracts CD modules provides from (or the a extractsDirectory following thereof) containingmodules: to customize the 'Full Course', the training presenters material are according recommended to their to A Directory containing a recommended 'Short Course' is also provided on the CD GovernanceLegalThe value mandate; of andestuaries; management. needsSouthUseful Africaessentialenvironmental are to provided the dataeffective ¡n and Appendix operationalinformation A, while managementsources Appendix considered of B estuaries. contains relevant a list to ofEstuarine important Management infrastructural in

TRAINING COURSE MANUAL page 2 Valuedesirable,2. is defined useful, as estimable "the quality or important".of a thing according to which ¡t is thought of asWHY being more DO or less WE VALUE OUR ESTUARIES? Thecontributeecosystemecosystems great value to goods provide, economic of estuaries and which servicesproduction. is in reflected turn stems generate Ecosystem in from the vastvaluethe services perceptionamount and contribute are of goodsofdefined ecosystems to and human as services the wellbeing.conditionsas natural that these The andcapital, sensitiveconceptprocesses which of systemsthroughregulationEcosystem which for humanon goods, natural a global use. on ecosystems, thescale, Ecosystem other to waterhand, and goods supply therepresent species and on services localthe that material and make occurregional themproducts up,scales. sustainthat They are and obtained also fulfil contribute human from natural life. direct on multiple scales, from climate Taljaard,connected.or materials,indirectly 2003, Tableto humanCostanza I welfare, et aI., with1997; those Mander listed et aboveaI., 2001; being Mander, less directly 2001). connected, while food, raw recreational opportunities, and aesthetic and cultural values lists some of the goods and services provided by estuaries (Van Niekerk and being more directly thesustainabledamagingTurpie opportunity et aI. activities use. (2006) costs Conservation state areinvolved. usuallythat part isGiven perceivedperceived of thethese reason byperceptions, to many be that greater toestuaries be and costly, than in aresome the both threatened benefits cases, in terms realities, of is of conservationthat management the management benefits and and of estuariesstrongandis conservationargued economic is taken here planningintothat,case account. while for will conservation general be toothless perceptions and unless sustainable theymay takebe trueuse socio-economic partin many of the instances, time, realities there into is account.likely to be a if the value of lt Estuary valuation serves to (Turpie et aI. 2006): showhighlight that the estuary degree degradation to which estuaries carries a contribute cost; to human well-being and economic output; estuaries.assistconservationbring ain moredevising benefits balanced more in efficienta currencyperspective incentive compatible to systems with andconventional financing decision-making tools for the management tools; and of planning and decision-making, by expressing 2006):Economic2.1 value is a measure of societal welfare or well-being, and is created throughTotal (Turpieeconomic et al. value concept GenerationContribution of to utilityemployment;household household or satisfaction. income; livelihoods (e.g. cash income, food, shelter); and TRAINING COURSE MANUAL page 3 Category Table 1. Summary of the goods andBiologicalGoods services and controlServices provided by estuaries FishMaintainingExamples and crustacean theof opportunities balance/diversity nurseries & andactivities ofplantroosts for s/ animalsmigratory ErosionSedimentRefugia/Migratory control supply corridors Preventionsandbanks.Creationbirds ofand soil maintenance loss by estuary of beaches, vegetation, sand and bars by and Ecological NutrientSoilformation supply and cycling plainsNutrientAccumulationthroughcapturing and in supply, mangroves.food soil of chains. nitrogeninsediment reed-beds fixation and and organic mangroves.and nutrient material cycling on flood DisturbanceCollectionGenetic resources regulationof living resources Linespills).FloodnaturalGenes fishing, control, .for and inter-tidal,nariculture, humandrought induced recoverycollecting, ornamental catastrophic and beach refuges species and events fromseine andfibre. (e.g oil Subsistence for foodNatureuseRaw (e.g. material appreciation building for subsistencematerial) ProvidingHarvestingviewingnetting access andof craffivork walking. to estuaries and house-buildingand associated materials.wildlife for TourismRecreational & CultureScenic views scientAesthetic,withResort,a sea-view scenic residential educational, views, houses,increasing research, housing turnover spiritual, complexes ofproperties intrinsic and offices withand fic values of estuary ecosystems. SportsWasteWater fishing sportstreatment fishing.BreakingEstuarykayaking.Water flyfishing, sports: down ofswimming, estuarywaste and and sailing del inshore oxing canoeing, conventional pollution. skiing and IndustrialCommercial and Commercialetc.)MaricultureWater supply (e.g.food and oysters,production regulation bait, FishingProductionandmariculture.Water worms. supply ('natural to marine and cultivated) environment offish, and crustaceanswater for Different measures of value are relevant to different decision-makers. useRawTransport materialfor services commercial Ports,Diamond harb and ours, titanium marinas mining and ski-boat launching sites Individuals and firms make constituteunderstandbasisdecisions of overall onthe value the market welfare basis from forces ofboth gains their anof (contribution ownchange,individual/firm financial while toand/or perspectivethe national latter utility areincome gains.and required a andnationalGovernments employment).to make perspective, decisions make decisions since that theare on formerin the lt is important to A commonmeasureoverall interest ofindicator national of society. of income societal - thewell-being Gross Domestic is income Product per capita. (GDP) - by the total population. Thus it is This is calculated by dividing a TRAINING COURSE MANUAL page 4 December 2006 Anchangehighly estuary given relevant contributes a change to estimate into estuaryGDP an through estuary'squality theor size. contributionexpenditure togenerated GDP, and/or by estuary-dependent the way in which GDPactivities. would anglersThisturnoveradded expenditure contributes isto spentthe national contributeson tointermediate the economy turnover to the goods(i.e.turnover of businesses ends and in up servicesan as industry. suchincome). (e.g. as For tackle-shopson example, vegetables), expenditure and the hotels. rest byis directrecreational value The intermediate expenditure, in turn, Part of the added.bybecomescontributes estuaries. The value torelationship The the added. totalturnover Thesevalue between of added contributionsother these businesses(contribution two to reflects value (e.g. to added GDP) the greengrocers) multiplier togetheris the sum effectsmake in of other the up of directthe thesectors, indirect direct and some indirectvalue value of added.added whichvalue typesNotNote of all that turnover, of the mostvalues and difficult how generated this part turnover is by estimating estuaries would changethe are direct reflected with or aindirect change in measures contribution in estuary of GDP. quality.of an estuary to different For example, the systems.educationalgeneratingconsumption Values direct, benefits of estuary such tangible associated as resources this income. are with often may estuaries bestmake expressed anwould important not in be terms contribution directly of peoples' measurable to peoples' Willingness in national livelihoods to Pay,accounting without rather Similarly, the aesthetic benefits of a view, and the scientific and EconomicEnvironmentalthan actual Value turnover, and concept. resourcethe latter The constitutingeconomicsTotal Economic proventypically Value Willingness use of ana typology ecosystem to Pay. of valuescomprises described Direct Use, in the Indirect, Total Option and Non-Use values. resources.Direct use values may be generated through the consumptive or non-consumptive use of In the case of South African estuaries, most, if not all, of this use is recreational, elsewhereproductionIndirectboating,and includes bird-watching)use in by values the both other economy consumptive are sectors activities. values by of saving generatedthe (fishing economy, on costs. and by outputs baitorThese that collecting) outputscontributefrom estuaries areand to derived non-consumptive net that economic fromform ecosysteminputs outputs (e.g. into farestuariesNon-usefunctioning less tangible valuesin such the future,thanasinclude water the and the abovepurification the value valuevalues, of and havingof non-use knowing nursery the valuesoption thatfunctions. their areto use biodiversityreflected the resources in society'sis protected. (e.g. willingness genetic) Although ofto economicsTurpie et aI. and (2006) resource-economics illustrate the relationships concepts of differentbetween types estuarine of value biodiversity in Figure 1. payand tothe conserve ecological- these resources, sometimes expressed in the form of donations. TRAINING COURSE MANUAL page 5 December 2006 PRO.G RAMM Productivity Ecosystem functionIng 4 & resilience and organisation Structure natural resourcese.g. Harvested e.g. FoodWater attention purification SERVICES e.g. Beauty, rarity, diversity Direct consumptive use value Ir Indirect value 4, nonconsumptive use value Direct ExistenceOption & value Local Regional to global e.g. Recreation All society i' Figure 1 The relationships between biodiversity, the concept ofservices' 'ecosystem and goods&total andeconomic value' typology of values (Turpie etal.. 2006) Turpienumber2.2 et aI. of (2006)ways. Withexplain no thatdevelopment, the different an typesestuary of woulddevelopment be expected might toaffect have estuary Economiclittle or values no direct intrade-o ause ifs in estuary conservation and development ecotourism,developmentvalueindirect (e.g. and perhaps while non-usearound having a little thevalue, negligible derived estuary owing by impact mightto passing its high addon hikers), biodiversity levelsignificant of and biodiversity the andvalue undisturbed ecosystem in and terms healthy functioning. estuaryof direct functioning. would uses Thus have such overall high as Sensitive valuesincreasedimpacted.use value would increases,use, be raised. but would but As the developmentdecrease valued attributesagain around beyond and an ecosystemestuarysome level. progresses services The point areto atthat likely which of toa resortvaluebecome isarea, maximisedsomewhat direct Thus the total value of ecosystem goods and services may initially be enhanced by sustainable.values,general,would depend plus the Thethevalues on latteradditional the associated wouldnature direct accrue and with use relative mainly conservation value inmagnitude thatthe future.would of estuaries of be the secured two would curves by beensuring described the indirect that in use andFigure levels non-use 2. are In TRAINING COURSE MANUAL page 6 Total IndirectDirect use + non-use values values None Level of development Sensitive Heavy Industrial The opportunity cost of estuary conservationFigure depends 2. Hypothetical on the level relationship of protection between applied the to estuaries. levelmagnitude of estuary ofdevelopment direct versus and indirect the and non-use values (Turpie et aL 2006) Thusfuture,Thisconservationrequired, cost the i.e. wouldvalues a incost which goalsinclude ofthat conservation maycase is any borne be theuse achievable mainlyopportunitythat might is restrictedin with bethe costsmaintained certainpresent. in wouldthe types present whileextend of development in there orderto any are to type securealso that of someare ause. flowdeemed developmental of value compatible. in the In some cases, complete protection may be In other cases, Propertybebenefits. obtained Whicheverdevelopment by the most the is valuablecase, simultaneously the alternative opportunity of use. significant cost of conservation economic value would and be alsothe benefits one of the that biggest would threatschallengeopportunityProperties to estuarine for costsadjacent conservation offauna protecting to anyand planners floratype estuaries inof and termswetland decision in urbanof habitattend makers. areas to loss, be are more exploitation,likely expensive,to be high. disturbance This which creates means and apollution. significant that the Theresourcenotenvironmental different have aplanning, requirementtypes and of despite socio-economicplanning to specifically the are fact all that goals.increasingly link water with Unfortunately, is conservation a beingprerequisite integrated Integrated planning for both in andtheDevelopment development senseis only ofpoorly considering andPlans linked conservation. (IDP) to both waterdoes planning.othereconomicsustainabilityDevelopment types efficiency.To of and beandplanning. trulysocial water Conservation effective, equity,Water resource whereasallocation management planning conservation will providesembody provide plans planningtheone should bottom goalsof the bedoes of mainline guided economic not in constraints termsnecessarily by theefficiency, of theobjectives for seek constraints development ecological to achieve set onby decision-making.conservationManagement andwhere decision-making development Turpie the lack et ofaI. planningunderstanding involves(2006) noteprocesses. trade-offs. that,of ecosystem while there or biodiversityare certain values checks can to leadmeet to minimum distorted This is especially the case for biodiversity TRAINING COURSE MANUAL page 7 analysingratherdeemedbiodiversity than economically the theconservation trade-offs minimum sound. between requirements,level The that the optimum is benefitsset any out conservationlevel in of most additional of conservation conservation beyond conservation that for planning societyis voluntary and exercises.needsthe opportunityand to willbe This determined,only involvescosts occur in if trade-offs,termsconservationsuch of as the whereas most well goals. to valuableas locate to design conservationalternative effective form incentivezones of development. in anmeasures estuary. andLocal Valuation financing scale is trade-offs necessarymechanisms are to also informto achieve made, these Turpiegoats et to aI. maximise (2006) recommend the economic that value planning of estuaries: and management decisions shouldAt includeleast 20% the offollowing the estuarine area within each biogeographical region should be conserved in Whereenrichmentnurserya largely development area natural and function, research.state, is seen as welt as aas use, providing property opportunities values would for bewilderness enhanced experience, if one side spiritual of the in order to maintain the valuable services that they provide such as Theandmodelestuary conservationrecreational that remains exists value needs. undeveloped, in many of estuaries South preferably Africanis derived estuaries, as from a nature various and reserve. can consumptive successfully This is a and highly combine non-consumptive successful development farsomeasuses. aeasier useful conservation Zonation, way tool of in limiting maximisingwhich goals consumptive preventswhite estuary not one prohibiting use value.type than of lt consumptiveuser's alsobag orprovides utility effort from uselimits. the altogether.impacting opportunity on Zonation of another's achieving is also is seen a Turpiemarket'2.3 et aI.or 'revealed(2006) divide preference' economic approaches, valuation techniquesand 'simulated into market' 'market or value' 'stated approaches, preference'Economic 'surrogate approaches valuation techniques (TableTable 2). 2. The Different more intangible types of the valuation type of value,methods the fewerand the the typesmethods of valueavailable they for are use. typically used to measure (Turpie et aL 2006) MarketMethods value methods valuesConsumptive use useconsumptiveNon- values valuesIndirect use Optionuse values& non- SurrogateReplacementProductionTravel cost market function cost method / revealed preference methods X X X SimulatedHedonicConjointContingent pricing market valuation valuation method /stated preference methods X XX X TRAINING COURSE MANUAL page 8 2.4 Additional In formation December 2006 More information on the value of estuaries and techniques to determine value can be obtainedTurpieeconomicand from: protocolJ K, Sihlope, benefits for incorporating N, of Carter,estuaries and through enhancing integrated estuary planning values and in planning management: and management. A, Maswime, T & Hosking, S 2006. Maximising the socio- a rationale Breen,InstitutePietermaritzburgEastern C M, ofCape andNatural Estuaries McKenzie, Resources, Management M 2001. Pietermaritzburg Managing Programme: estuaries Phase in IlSouth - Institute Africa: of AnNatural introduction Resources, -

TRAINING COURSE MANUAL page 9 3. HOW DOES AN ESTUARY WORK? December 2006 which3.1In the has scientific a free connectioninternational with literature, the open an seaestuary and iswithin defined which as 'asea semi-enclosed water is measurablyDefinition coastal bodydiluted of withwateran Estuary differentpotentialRecentlyfresh water aspectsforpromulgated derived different of from estuaries interpretations legislation land' (Cameron are hasbeing still addressed & regulated exists.Pritchard What the 1963;by deficiency differentis Pritchardalso confusing authorities. in 1967). definition is theThis in factearlier section that, law, currently,draws but theour waterAccordingattention body to tothat thesome is National open of the to mostWater the sea pertinent Act permanently 36 of definitions. 1998 oran periodically, estuary is defined and within as: 'a which partially the orseawater fully enclosed can be the"TidalThediluted, actionSeashore lagoon" to anof extentthe meansAct tides" 21 that of"any andis1935 measurable,lagoon "tidal refers river"in towhich anwith means estuary afreshwater rise "that and as a partfall drainedtidal of of riverthe any from water-level orriver lagoonland.' in which andtakes definesa placerise and itas as afall follows:result of the of explicitlyThewater-level Marine stating takes Living the place Resourcesdefinition as a result of "tidalAct of the18 river". ofaction 1998 The of alsoRegulationsthe tides" refers tounder an estuary the Marine as aLiving "tidal Resources river" without Act, waterThehowever, White that refer hasPaper toa connection theon Sustainabledefinition with as Coastaltheprovided sea andDevelopment in the where Seashore water, in SA Act. derived (2000) from defines land an drainage, estuary as:is mixed "A body with of intoTheseawater". accountprimary criticismthe situation of the where definitions the body of "tidalof water, lagoon" as defined, and "tidal is closedriver" is or that otherwise neither cut of theseoff from takes the appropriate.Fromsea. the list of definitions provided above, that of the National Water Act is considered to be the most its(DWAF,The3.2 present methods 2004) format for provide Resource as part the of most Directedthe guidelines. appropriate Measures The administrative definitionfor estuaries states: definition, developed but under this isthe not NationalGeographical legally Waterbinding Act in Boundaries TRAINING COURSE MANUAL page 10 expandsSeaward toboundary: the nearshore marine environment and where this boundary definition may need to Estuary mouth (however, there are systems where the 'estuary' often December 2006 LaterallevelsUpperbe reconsidered can boundary:boundaries still be in detected Extent future).along theof or tidalbanks:the extent influence, The of 5.0 saline i.e.m above theintrusion, point mean upwhichever sea to whichlevel is (MSL) tidalfurthest variationcontour. upstream. in water Upperextent boundary: of saline Extent intrusion of tidal which influence ever furthest or upstream Lateral5.0 m boundaries contour above along mean banks: sea level (MSI) SEA Seaward boundary: Estuarycan mouth expand (but to near-shore marine environment) 3.3 Figure 3. Geographical boundaries of estuaries Estuariesserveconstitute as vital a unique nursery habitat areas type for a that number supports of marine fauna fish and and flora shellfish. found nowhere They are else. alsoSpecial Ecologicallyimportant feedingEcological they lieFeatures at the interfaces between terrestrial, freshwater and marine environments. / They and roosting areas for a number of bird species, both resident and migratory. In addition to their (Lamberthestuarinenationalecological economy and function,& Turpie estuarine-dependent in 2003).estuaries terms of fulfilfisheries important fisheries alone economic is considered and cultural to be highly functions. significant. Their contribution The total value to the of is estimated to be in the order of R950 million for 1997 terrestrialthoseBeing rivers areas environs. that where drain rivers into them, meet asthe well sea, as estuaries in the adjacent are also marine affected environment by activities and in thethe catchmentsimmediate of TRAINING COURSE MANUAL page 11 moreinsupportEstuaries comparison variable, some are ofcomplexwhichwith the those mostcan and lead ofbiologically thehighly to northernextreme variable productive hemisphereenvironmental natural systems. systems and conditions. South that Africa's provide riversestuaries unique mean areenvironments annual relatively run-off small that is estuaries.Thephysical varying Definingboundaries physical estuaries characteristics are dynamic is also and have difficult estuaries lead from to typicallya anumber legal span and of different theadministrative boundaries definitions whichperspective for haveSouth traditionally asAfrican their defineauthorities.3.4been estuaries used The to historicfordefine ecological thedevelopment extent management of jurisdictionof law and in South for of legalnational Africa and reflects central,administrative the provincial tension purposes. betweenandEstuarine local the government need Classification to Accordingestuaries,biogeographicalinclude: to Whiffieldbased zones primarily (1992), in South thereon the Africa. are broad more A classification physical than 250 features estuaries system of inhas estuaries South been Africa, developed (Whitfield, which forfall 1992). South within Africanthree These conditions(DurbanEstuarine Bay) bay:are are not Water permanently common area exceedsand linked water to1 temperaturesthe200 sea ha. and the are salinity strongly within influenced them reflects by the this. sea. Marine and Natural bays (Knysna) and artificially formed bays Hypersaline Permanently(Whitfield,estuarine 1992).organisms open estuaries: dominate Vertical these and systems horizontal and salinityextensive gradients wetland/mangrove are present and swamps are modified occur estuaryconditionsmacrophyteby the river type in flow, arebeds,the controlled uppertidal are range commonreaches by andthe canand seamouth occurthe during faunacondition. during normal is timespredominantly Wetlandsconditions of severe (saltand marine drought. bymarshes), river and Waterduring estuarine. as temperatureswellflood as conditions. submerged in this Hypersaline manyintrusion.generallyRiver mouths:kilometres. Duringpermanently Riverine strong Heavy open influencesflood silt loads butconditions, the dominateare tidal frequent the prism theoutflow inisphysical smallthese of these andestuaries, processes strongmouths often riverinein can these resultinginfluence outflow estuaries. in the prevents shallow seaThe salinity mouth mouthsmarine foris Estuarinebottom(<2m). Waterwaters. lakes: temperatures Water area are exceeds strongly 1 200influenced ha. These by the are river usually inflow drowned although river the valleyssea can filled influence in by permanentlycharacteristicsresultreworked in complete sediments or and temporarily theseparation and system separated linked can of tothe be fromthe referredlake sea the from and sea to salinitytheasby avegetated sea coastal within that lake. thenthemsand results isdune highly systems. in variable. a loss The of estuarinedune can Estuarine lakes can be either Freshwater freshwatertemperatures,salinityinput, evaporation fluctuation. organisms which Theand all are tidaltheoccur, directly magnitude prism depending relatedis small, of on theto and thesolar marine marinesalinity heating connection conditionand andriver radiation. of inputare the the havesystem. main little causes influence of this on waterlarge Estuarine, marine and TRAINING COURSE MANUAL page 12 December 2006 whichconnectionTemporarilylongshore also resultswith sandopen the movementinestuaries: sea. large Sand amounts on Sand bars the form adjacentbarsof sediment asoften a coast. result form removal. Floodingof in a the combination However, mouths is frequently of infillingof these low the river from estuaries,cause flow marine of conditions mouth blocking and opening, fluvial and off andsedimentfoundindependent riverine in these can inputs besystems, of rapid. them control Hypersalinedependingwhen the the water mouth on conditions thetemperature isstate closed. occurof the in in mouth.these these systems estuaries when during the times mouth of drought.is open, butTidal is Marine, estuarine and freshwater life forms are all 3.5.1Physical3.5 Physical components (or driving) refer to hydrodynamic components (water movement patterns), sedimentKey dynamic Biophysical and water components Theocean.stressors)processes driving components for in theestuaries. changes in Theseestuaries observed components are in biological mainly are influenced components, the important by two and driving forces, also affect forces i.e. other (also beneficial referred uses. to as river inflow and the Theinclude: river inflow is evaluated in terms of floods and seasonal base flows. Key aspectsSand/mudLong-term driven sedimentdistribution by floods erosion/deposition patterns along the cycles; length and of an estuary. Key aspects driven by seasonal base flows include: TheState extent of mouthof the salinityin temporarily penetration open/closed in permanently estuaries open (duration estuaries. and frequency); and FigureThe interaction 4): between the river inflow and the marine environment can be explainedDuringsystemDuring asand,low highfollows tides,at tides,the (see watersame seawater time,drains raisingpushes from water theup intoestuary, levels the estuary,in usually the estuary; introducing resulting and inmore the salinewater waterbecoming into the dominant,During periods resulting of in low the flow estuary (e.g. becoming estuary during increasingly dry seasons saline. or Under drought), extreme the sea'sconditions,fresher, influence while the salinity becomesthe water level in the estuary drops. inestuaryhypersalinity). anan estuaryestuary mouths is can Prolonged flushedand/or even leadout become periodsto to sea longer and higherof periods thesethe entirethan low of that mouthsystemflows of couldclosure.seawater usually also Duringbecomes duecause tofloods, prematureevaporationfresh. most of closing the(referred saline of certain waterto as TRAINING COURSE MANUAL page 13 CAPACITY BUILDING PROGRAMME t D e c e m b Low tide er High tide Figure 4. The difference in water levels and salinity penetration between low tide and high tide estuarineFloods also parameters: influence the sediment dynamics of an estuary, which in turn influence the following StateDistributionBathymetry of the of(depthmouth sediment and(in temporarily shape) types (e.g. of anopen/closed mud estuary; versus systems). sand); and Water quality' refers to concentrations and distribution patterns of: Temperature;Salinity;pH; OrganicInorganicSuspendedDissolved nutrients nutrientsoxygen; solids (e.g.and (e.g. turbidity;organic nitrate carbon);and phosphate); and estuaryThe water at(i.e. anyquality how time, longcharacteristics i.e. it seawater, stays in theoffreshwater an system) estuary or also aare mixture influences largely thereof. dependent the Thewater retention on quality the type timecharacteristics. of of water water in in the an In Toxic substances (e.g. trace metals and hydrocarbons). TRAINING COURSE MANUAL page 14 uniqueaddition, water processes quality character within an of estuary a specific (e.g. estuary. plant growth, nutrient recycling) also contribute to the Alloxygen)(e.g. in all, water the and above level sediment variationsimply dynamics. that estuariesand water are velocities), highly variable water environmentsquality (e.g. salinity, in terms temperature, of hydrodynamics pH and 3.5.25).Biological Biological components (or response) refer to estuarine component vegetation,Estuarine benthic biota invertebrates, fish and birds (See Figure are usually capable of tolerating the highly variable environments of these systems.mMicro-algae icroalg ae. form a crucial part of the food chain in estuaries and include phytoplankton and benthic estuaries.vegetationMacrophytes provides include both mangroves, a safe habitat salt from marshes, predators submerged and forms macrophytes, a crucial part ofreeds the food& sedges. chain inThe duringspeciesinhabitantsBenthic the and invertebratespreceding surfacesuch as highfeeders.fish refer andtide. birds.to Crabs,These organisms fororganisms example, such provideas forage crabs, an during sand important prawns, low tidefood mudon source the prawns, material to other various depositedestuarine mussel speciesspecies)A variety whichwhich of fish useare species completelyestuaries are foundonly dependent as in nursery estuaries. on estuariesgrounds There when, forare, their for during survival.example, spring On fish andthe (some othersummer, estuarinehand, juvenile there mullet arefish Estuariesspeciesenter the are areestuary found very inimportantto estuaries, take advantage bird for habitats, example: of its particularly mullets,sheltered grunter, in and terms food king of breeding,fish,rich environment.shad, roosting moonies. andA variety feeding. of Thefish blackEstuariesherons,intertidal oystercatchers. gulls, andalso waders, floodprovide plain ternsprotected areas and corrnorants.ofhabitats these systemsfor someBirds preyusuallyof our on endangered prawns,support marsha wideRed crabs, Datavariety species,pencil of birds, bait such andsuch as fish. asthe

TRAINING COURSE MANUAL page 15 Benthic invertebrates Figure 5. Illustration of the various estuarine biological components More3.6 information on how estuaries function can be obtained from: Allanson,Additional BR In& Baird, formation D (eds) 1999. Estuaries of South Africa. Cambridge: Cambridge StellenboschEstuariesDay,University JH (ed) Pressof 1981.-the (Green - Cape.Available Estuarine Reports' Part at Ecology. most available academic AA from Balkema, libraries CSIR, Cape Stellenbosch). Town. Il Synopses of available information on individual systems. Whiffield,Commission,Estuaries:Hay, D, AKHuizinga, A1995. Pretoria. Guide. PAvailable and WRC Mitchell, Reportscientific S 2005.TI information241/04. Managing ISBN on Sedimentary 1-77005-272-Oindividual South Process African in South Estuarine African - Water Research www.jlbsmithWhiffield,lchthyologicalsystems. AK Water . ru.ac.za 1998. Monographs Research Commission of the J.L.B. Report Smith No 577/1/95Institute -of www.wrc.org.za/ Ichthyology, No. 2 - SAIAB at Biology and Ecology of Fishes in Southern African Estuaries. TRAINING COURSE MANUAL page 16 foraboutOur4. people use estuaries. of to the live. goods Estuaries Land and use, will services infrastructure continue provided to beand threatened bydevelopment, estuaries by development,often and waterthreatens quality as thethey ACTIVITIESand very are quantity thingsattractive issueswe places value in ascommunitiespollutionthe the surrounding pressure does rely noton catchmentupon. these threaten The resources exploitationalso the estuary'sneed increases. to of be livingability managed resources to provide to ensure in estuariesthe goodsthat upstream needs and servicesto bewater closely downstreamextraction managed or The threats to estuaries and the relevant legislation are categorised below under theExploitationWaterLand headings: use, quality Infrastructure of and Living Quantity; Resources. and and Development; The4.1indirectly.pertaining category to,Land or use,in the Infrastructure proximity of, and an Development estuary that encompasses influence the all health developments of Landan estuary andUse, activities directly Infrastructure or and Development Threat BridgesMarina development Concern Destruction,estuarine habitats fragmentation and/or ecosystems or modtìcation of MouthBankLow-lyingLack stabilizationof stabilization maintenance developments & destabilization of along infrastructure banks (e.g. Art.ficialReduction Mouth in estuarine Breaching1 productivity ExceedanceMiningDredgingsewageCumulative (e.g.plants) sand of impacts carlying winning) of development capacity resulting fromPoor boating, agricultural bathers practices etc. waterPollutionSoilDestruction erosion quantity caused of andriparian by quality agricultural area concerns) return flow (see Artificial mouth breaching isbreachingreachedto atemporarily common to at prevent practicethe open/closed wrong flood in estuariestime damage estuaries. of year, where to breachingproperties. As coastal a result, developmentsat Problems toothe lowmouth water which ishave breachedlevels, are occurred associated breaching artificially at too with atlow beforethe artificiallevels wrong natural next mouth position breaching breaching or digging levels include a tooare marshshallow vegetation initial trench, die-off resulting due to in long increased inundation. sedimentation, no juvenile fish migration in spring or summer if closed, and salt- TRAINING COURSE MANUAL page 17 December 2006 Activities4.2 in the catchment may influence the quantity and quality of river water enteringWater an estuary. quality and quantity WaterTHREAT Quantity issues Reduced run-offo to estuaries due to DirectConstruction abstraction of majorby local dams farmers and CONCERN patternsAlteredInterference turbidity with and/or natural siltation migration o InfestationAfforestationdamsCumulativeindustry by alienimpact vegetation of numerous smalifarm inIncreaselossEarly major of and river floodsin extended sedimentation inflow (less mouth scouring) dueclosure, to decrease due to Enhanced rivero Inter-basinWaste water transfers treatment works flows AltereddamsDecrease mouthsometimes in sedimentationclosure acting regimes as sedimentdue to major traps Water Quality issues Point source dischargeso Hardeningindustrialmunicipal of effluent(waste catchments ('including including sewage cooling disposal) waler,) EcosystemHuman health degradation issues DiffusePollutionMaricultureLitter discharges related waste to products shipping activities in harbours discharges Non-natural salinity and temperature levels o fertilisers,groundivalerAgriculturalSepticThe pesticides andinflow conservancy and of and contaminatedpastoral herbicides tank run-off seepage storm-water containing or EcosystemHumanNutrient health enrichment degradation issues Exploitation4.3 of living resources, include issues relating to over-exploitation, biodiversityExploitation protection, of living resources THREATmariculture and general zonation for the harvestingRecreationalfishing of organism. CONCERN Loss of biodiversity (e.g. loss offish and bait species) AquariumBailPoachingTraditionalfishCommercialfishing collection fish collecting traps (e.g. netfishing) DestructionLoss of eco-system of habit structureat HarvestingMaricultureInappropriateTranslocatedactivities of(e.g. mangroves andfishing alien competitions) fauna andflora levels of recreational TRAINING COURSE MANUAL page 18 These threats to biodiversity can be linked to growing populations placing ever-increasing demands on December 2006 requiredpolicycompliance.natural deficiencies resources before Even setting within andin that biodiversity operating protected desired conservationlevelsareas', of protection biodiversity goals of and biodiversity protection strategies. haveis inadequate. yet to be Inset part, and this these reflects are in an environment of inadequate planning, enforcement and government4.4isInternational the fragmentation agencies. experience Threats of estuarineindicates include: thatmanagement the most fundamental amongst the pitfall different in achieving national, biodiversity Legalprovincial and protection and Institutionallocal Structure betweencoordinationLackThreats of communication, government and cooperation departments Concern DuplicationLackNo communication of co-ordinationco-operation of work, between lack('Government,)within of governmentnationalresponsibility departments departments responsibilitiesLack of clearly defined, legislated LackNarroivJurisdictionLegislativeConflicting offunds jurisdiction mandate/ Responsibility: legislation e.g.not controlclear don of 't baitknow collection who is responsible only implementationLack of effective and planning, management ProblemsNoNeedCorrective holistic monitoring in management implementing Action protocols - procedures plan Integrated for each andfollow Cat estuary chment up! Management Socio-economic problems PovertyMigrationsedimentation)Dfflculties to in coastal implementing areas due solutions to rising to unemployment problems (e.g. removing soLacklegislation of enforcement and the ofcapacity to do LackNeedforFailure of capacity resourcescommunity to implement & (human commitment beneficiation environmental &financial) forlegislation enforcement & plans StLack akedevelopers ofholders internalisation of costs by RiskRangeStakeholdermunicipalityLack and of responsibilityof internalisation dfferent fatigue interest should of costs groups be carried with bydfferent developers needs or (dfflcult to Lackexistingestuaries of data information and and poorknowledge distribution on of LackNomanage) database of distributionenvironmentalindicators for general of of estuarine informationknowledge: access health -engineers, poor communication town planners InventoryunderstandingLack of knowledge of resource systems) inon communities basesocio-economic lacking living uses next to estuaries ('i. e. TRAINING COURSE MANUAL page 19 Although4.5relatingmanagement tothe estuarine value and controlof value. estuaries can result ¡n net loss of value to society as was discussedWhy in do the we module need to manage an estuary? is often reflected in the activities they support, inappropriate 4.6goodsoverallneedEstuaries and planning to services.take constitute cognisanceprocess, the which interface of their implies needsbetween that toconservation, ensureland and a sea.sustainable development They therefore future and forwater form allAdditional thatresourcesa critical depend node planning Informon in their the ation More information on threats to estuaries can be obtained from: economicTurpieprotocol J K, benefits forSihlope, incorporating of N,estuaries Carter, and through enhancing integrated estuary planning values and inmanagement: planning and a rationalemanagement. and A, Maswime, T & Hosking, S 2006. Maximising the socio- developmentandMcGwynne,Eastern procedures Cape planning L forandEstuaries incorporating McKenzie, and Management related M information 2006.processes Programme:Objective andare knowledgeestablished 1: PhaseProfiling Il. on estuaries throughWater estuaries Research collaboration in IDP into planning. theCommission. integrated between Policies AfricanVanCommissionresearchers Niekerk, estuaries. L &and Taljaard, CSIR Report S 2003. ENV-S-C A framework 2003-077. for effective Stellenbosch cooperative governance of South authorities at local, district and provincial levels. Water Research

TRAINING COURSE MANUAL page 20 CAPACITY BUILD D e c e m b wellNational5. as institutional Policy is arrangementa statement of to intent achieve by governmentdesired outcomes on its vision, for specific principles, sectors. goals National LEGALand objectives Policy isMANDATE as usually captured in White Papers. Key policies (white papers) pertinent to estuariesWhite include: Paper onfor aSustainable National Water Coastal Policy Development for South Africa; in SA; White Paper on SpatialEnvironmentalMarinethe Conservation FisheriesPlanning Management andPolicy and Land-use Sustainable for SA; Policy; Management. Use and of South Africa's Biological Diversity; nationalNational legislation Policy (white governing paper) estuariesis given legal can bestatus subdivided through into National acts related Legislation to (seeThe (Act). ManagementFigure setting In 6):South of overarching ofAfrica, key activities strategic or developments resource objectives; threatening and estuaries The key activities or developments that are threatening estuaries can be subdivided into:WaterExploitationLand quality use and and of infrastructureliving quantity; resources. development; and Strategic Resource Objectives>' 'I_Q)o vi Oc .2oLU>X.-CD -I Figure 6. Illustration of the relationship between policyResource and legislation Objectives governing and key activitiesStrategic and development that threaten estuaries Activities/Development ('Threats') TRAINING COURSE MANUAL page 21 ofStrategic 5.1key sectors. resource They objectives predetermine, are cross-cutting to a large extent, objectives the management that influence objectives the management onStrategic a local of level.a number Resource For Objectives StrategicNationaloptionsexample, for resourceWaterdeclaring that specificAct objectives an may estuary system preclude are a orMarineoften classifyingthe determined discharge Protected (determining byofArea wastethe potentially national waterthe health or bylimits provincial a status)local the number authority tier an ofestuary government. of indevelopment the under future. the Key acts related to strategic resource objectives include: National Environmental Management:Management ActBiodiversity 107 of 1998; Act 10 of 2004; NationalMarine Living EnvironmentalWater Resources Act 36 of Management: 1998;Act 18 and of 1998; CoastalProtected Zone Areas Bill. 57 of 2003; environmentalThemanagement National principles,Environmental Management Act 107 of 1998 (NEMA) provides for co-operative governance, and procedures in general, through the for their incorporation establishment into of decisionsnational environmentalaffecting the custodianshipEnvironmentalandenvironment. Theof theAffairs act environment emphasizes and Tourism (Smith co-operative (DEAand Cullinan T) governance to be2000). therelated andlead ensures agent thatin ensuring the environmental the effective right rights in the Constitution are protected. NEMA requires the Department of resourcesmanagementThe National and and theEnvironmental conservationfair and equitable of Management: biological sharing ofdiversity, benefits Biodiversity the arising sustainable from Act biodiversity.10 use of 2004of indigenous In provides addition, biological forthe theact itsandNationalratifies natural conservation international Environmental landscapes of ecologically agreements and Management: seascapes. viable relating areas ProtectedThe to lead representative biodiversity agent Areas is Act thewhich of 57 DepartmentSouth of are 2003 Africa's binding provides of biologicalEnvironmental on the for republic.the diversity protection Affairs Theand TheestuariesResourcesand management Tourism. is Act the 18 andDepartment of control 1998. ofThe of living Environmentallead resources agent in thein Affairs estuaries management and primarily Tourism. and falls control Estuaries under of theliving may Marine resourcesbe declared Living in whichThehealthmarine waterNational status protected is derived.Water to fulfil areasAct theirThe 36 (MPA) offunctionact 1998 calls under recognisesas for protectedthis the act, Classification aquatic which areas. in ecosystems turn (i.e. requires predefined as that the theyactual health be resource maintained status) baseand in theafrom good Theresourcessetting White of inResource paper South for Africa. SustainableQuality The Objectiveslead Coastal agent is (i.e. Developmentthe Departmentoverarching in ofSouth management Water Africa Affairs (April andobjectives) 2000)Forestry. will of ultimately all water be given legal status through the National Environmental Management: Coastal Zone Bill (to be TRAINING COURSE MANUAL page 22 Tourismreferred (DEAT). to as the Overarching Coastal Zone strategic Bill). objectives The lead agentare listed is the under Department a number of of Environmental themes, namely: Affairs and i Theme E:D:C:A:B: PollutionGovernanceOurNaturalCoastal National ResourcePlanning Control andAsset; and Capacity andManagement; Waste Development; Building; Management. and Key5.2 acts related to land use and infrastructure development include: NationalLand use Environmental and Infrastructure Management: Coastal development Zone Bill; ii LocalDevelopmentNational GovernmentGovernment: Environmental Facilitation Transition Municipals Management Act 67Second Systems of 1995; ActAmendment Act 107 32 of of 1998; 2000; Act 97 of 1996; and Africaestuaries,Policy dealing(April is 2000),primarily with the which dealtmanagement will with ultimately in the and White controlbe given paper of landlegal for use Sustainablestatus and through infrastructure, Coastal the National Development asMineral far asEnvironmental itand pertains inPetroleum South to Resources Development Act 28 of 2002. AffairsManagement:expandedPlanning and Tourism andon in CoastalDevelopment the (DEAT). proposed Zone BillCoastalof the(to bewhite Zone referred paperBill. The to lists as lead the a numberagent Coastal is theof Zone important Department Bill). sub-goals of Environmental that are Theme C: Coastal andcameChapterNew the into Environmental 5delegation effectof the onNational 3rdof authority JulyImpact Environmental 2006. Assessmentunder Government NEMA Management (EIA) (South Notice regulations ActAfricaNo. (NEMA, R.385 2006a). weredefines Act Activities107 published the of 1998).process that in TherequireApril to beregulations 2006 followed a Basic under GovernmentTheseauthorities,Assessment include as Noticeas identifiedactivities defined No. such inR.387in terms regulations as lists dredging,of sectionactivities 22 toexcavation,24 identified26 of (SouthNEMA ininfilling areAfrica terms listed and2006b), of insection removal Government 24 of of soil NEMA Notice from that an No. estuary.require R.386. as well as the competent construction2006c).scopingregulations andThese environmentalor are include,earth especially moving for example,assessment pertinent activities developmentto in (i.e.estuaries the a sea "full as orEIA") activities withinthe inlatter terms100m which are of inlandrapidly exceedregulations of expanding the20 hectareshigh-water27 to development36 (Southor mark.more, Africa The andnodes ThealongrequiresSystems legislative the South Actthat 32Africancontext each of 2000. localcoast for municipal Chapter authorityand are 5under planningadoptof this tremendous aact single,is deals provided pressurewith byIntegrated the from Local human Development Government: activities. Planning, Municipals which inclusive plan for the development of that SystemstheDevelopmentamunicipality. range principles of Act. sectors An Facilitation of TheIntegrated this suchLocal act ActhaveasDevelopment Government 67water, also of 1995 beentransport, Plan requires Transition incorporated is intended land the usesettingSecond tointo andencompass ofChapter environmental AmendmentLand Development 5and (s harmonise23 Act (I)) management. 97of Objectives the ofplanning 1996Municipal alsooverandThe TRAINING COURSE MANUAL page 23 requires that all municipalities, both Transitional Local Councils (TLCs) and District Councils, draw up ..CAPAC1TYB UILD1NGPROGRAMME. above-mentionedAct,of Integratedjurisdiction. which is Developmentcurrently The acts requirements isdriving the Plans Department the of(IDPs) establishment this actforof Provincialhavethe integrated andlargely andimplementation been Localdevelopment incorporated Government. of and IDPs. inmanagement the The Municipal lead agent of Systemstheir for areas the Mineralthatincludingrequirements identify andsand a regarding mine's Petroleumand coastal impact the mining.enforcingResources on the Theenvironment of Actenvironmental Development requires and Environmentalprovide protection Act a 28clear and of Management programme 2002management contains on Programmes of how mining these impacts, will(EMP) be the statutory actofenvironmentalmanaged, any is administered law that based issues,relates onby thetheanto any DepartmentEnvironmentalact matterrequires affecting of consultation Minerals Impact the andenvironment Assessment with Energy. each department before (EIA). an To EMP charged ensure may with becompliance approved. administration withThe Key5.3 acts related to water quantity and quality include: Water quality and quantity NationalPreventionWater Services EnvironmentalWater and ActCombating 36108 of Management:of 1998; 1997; Pollution of Coastal the Sea Zone by Oil Bill. Act 6 of 1981; and waterActresourcesIn 36 isestuaries, derivedof 1998. in waterand, SouthThe Departmentthrough quantity Africa, recognisestheand ofResources quality Water aquaticrelated Affairs Directed issuesecosystemsand Forestry Measuresare mainly as (DWAF), the (RDM),dealt actual aswith focusestheresource under custodian theon base Nationalthe of from wateraquatic whichWater ultimatelymanagingReserveresources is have theactivities as only an ecosystemimpact remaining that wouldon theratherright alterin-stream under than the just thebeds and act.on riparian andwater DWAF banks itself habitat also asof has an aand commodity. theaquatic the responsibility in-stream resource Water biota requiredof and controlling of that a particularto would meet and the theThelicencesresource. Department Department with Management variousof Water of Environmental conditions Affairs and controland attached Forestry. Affairsof such to themand activities Tourism (Ms Lare Hill, alsoby pers. way plays comm.,of generala significant DWAF). authorisation Therole leadas there of agent water are is Theestuariesofadditional theWater Sea in actsServices theby thatOilevent Actrelate ofAct 6 an ofto108 oil 1981the spill of protection 1997at(which sea). is requires of water quality,that contingency e.g. Prevention plans and be Combating in place to Pollution protect not considered to be of major importance to the servicedevelopresource,management institutionsa regulatory for example and and controlframework asdefine a ofresult theirwater within of roles suchquality which andservices, andwater responsibilities. quantity areservices still in regulated canestuarine be provided under resources the and Water asto establish itsAct. key focus water is to Water quality impacts on a water TRAINING COURSE MANUAL page 24 The White paper for Sustainable Coastal Development in South Africa (April 2000) will ultimately be CAPACITY BUILDING PROGRA December 2006 Departmentliststogiven as two thelegal sub-goalsCoastal status of Environmental Zonethrough that Bill). are the ThemeAffairs expandedNational andE: EnvironmentalPollution Tourismin the proposed Control(DEAT). Management: and Coastal Waste Zone CoastalManagement Bill. Zone The Billoflead the (to agent whitebe referred paperis the Key5.4 acts related to exploitation of living resources include: MarineExploitation Living Resources of living Act 18resources of 1998; and maricultureExploitation and of livinggeneral resources zonation includes for the harvesting issues relating of organisms. to over-exploitation, biodiversityNational Environmentalprotection, Management: Coastal Bill. estuariesResourcesThe management is Actthe 18Department and of 1998. control Theof of Environmental livinglead agentresources in Affairsthe in managementestuaries and Tourism. primarily and controlfalls under of living the Marine resources Living in forestablishingThedevelopment, the primary management sustainablepurpose prohibition of of the limits the Marineand species,for control the Living exploitation andof Resources destructive approving of resources, Act fishing plansis to methods,protect declaringfor conservation, marine and fisheries declaringliving management resources,management marine throughprotected areas and resources.Theareas Marine (M PA). This Living has Resources resulted in Actsome overrides provincial all and other local conflicting legislation legislation that provided relating effective to marine protection living forbeThenew living given Act.White resources legal paper status being for Sustainablethrough superseded the NationalCoastal before proper DevelopmentEnvironmental protection in Management: Southmeasures Africa were (AprilCoastal put 2000)in placeZone will underBill. ultimately Theme the Tourismthe5.5D: proposed Natural (DEAT). Resource Coastal ManagementZone Bill. The of leadthe white agent paper is the lists Department a number ofof sub-goals EnvironmentalAdditional that are Affairs expanded Information and in More information on legislation can be obtained from: Smith,Workshop.Estuaries. N and 3 In- Cullinan, 5 Boyd, May 2000, A C J, 2000. Barwell, Port Elizabeth, L & Taljaard, South Africa.S (eds.) Report Report No. on 2, the Marine National and EstuariesCoastal Review of South African Environmental Laws regulating AfricanVanManagement Niekerk, estuaries. L & Implantation Taljaard,CSIR Report 5 2003. Workshops. ENV-S-C A framework 2003-077. Cape for Town: effectiveStellenbosch Chief cooperative Directorate governance Marine and of SouthCoastal TRAINING COURSE MANUAL page 25 6. GOVERNANCE AND MANAGEMENT servantsHistorically,6.1 who makegovernance" up governing used to institutions be broadly - understoodwhich in turn as referred government to a political- the elected systemWhat officials or is to Governance? andthose civil governmenteconomicwithdevelopment the capacity and officials ofsocial toall formulateeconomic were believed and socialimplement to have resources. policiesthe ultimate and withcapacity the authority to manage to manage and influence a country's the resources. Due to their public administration and executive functions, politicaldefinitionhowMore countries recently, resources of "governance" thisare and runlimited institutionsand conceptrefers managed, tofor of the the governance and process well-being recognises by has ofwhich its been the people. society limitations broadened manages of to governments. account its economic, for the The socialrealities broader and of A system of governance ideally includes all sectors of society: Non-governmentGovernment institutions; organizations; A system of effective governance reflects the following principles: ScientificCommunity community. or civil society organizations (including private and commercial sectors); and Accountability;Transparency.ConsistencyParticipation; (Predictability); and Governance6.2 on local level is best implemented through Joint decision-makingJoint platforms, decision-making such as platforms KeyEstuarine factors Forums needed or to Estuarine successfully Advisory implement Committees, such a processwhich allow include: for community participation.Representation from all relevant sectors of society; DedicatedMust(legal)Government commitment powers champion representations. to implement towards to keep common a momentum decision This goals;is especiallymade going; by anda importantforum or committee; as authorities hold the executive Examples of who should be represented on such a joint decision-making platformCommunication include:National: DWAF, DEAT (MCM), DME; TRAINING COURSE MANUAL page 26 Provincial Department of Environmental Affairs and Planning; TourismNationalNatureCatchment boards; Conservation Port management Authority; & National authority; Parks Board; LocalRatepayersWaterHeritage developersuser associations; associations;associations; and industries; GeneralScientificNon-governmentalLocal angling public. community or fishing organisations (ecological, groups; social& community and resource based economic);organisations; and preparing"Management"6.3 and implementing refers to a continuous an integrated and plan dynamic for the processprotection that and unites development all sectorsWhat of resources, of societyis management? ¡n in thisGeneralaccount case estuaries. theguidelines social, The economicfor effective ultimate and managementgoal environmental of management include: needs is of sustainable the current anddevelopment future generations. which takes into TheNothingNoManagement substitute more is youperfect; isfor know complex; good the leadership better your and decisions; planning; BuildYouManagementKnow cannot relationships the law, manage is follow a process and alone;it andtrust; of make learning it work and for doing; you; ThinkInStartCommunicate, empowering small ahead and and communicate,beothers predict realistic; you what empower communicate;will happen; yourselves; and AfricanA number estuaries, of different including: management approaches (or frameworks) have been proposedEverything for takes South longer than you think. TaljaardFrameworkStrategicManagement 2003). adaptive proposed procedures management as linked part of toapproach National Integrated (Hay Estuarine Development 2005); Management and Planning (McQwynneProtocol (Van 2006); Niekerk & Each of these is discussed ¡n more detail below TRAINING COURSE MANUAL page 27 theThe6.3.1 localIDP is Integratedgovernment the tool for achievingDevelopment level. The development IDP processPlanning ¡n anand integrated(IDP) the details manner of each between phase municipal are described sectors onby ThereMcGwynne are five phasesand McKenzie (Figure 7):(2006). The IDP process is set out in the IDP Guide PackPhase (DPLG 2 3ProjectsI -Analysis Strategies 2001). A Preparation Phase (known as Phase 0) precedes these five phases and focusesPhase on developing 4 5Approval - Integration a focusesstakeholdersbudgetProcess allocations. on Plankey and issues, totake guide place and the withinis IDP. adaptive the framework in that it of co-operative governance. lt is strategic in that it The IDP process must achieve acceptance from all relevant is reviewed annually to refocus its priorities and Phase 4 Figure 7. Phases ¡n the lOP process (McGwynne and Mckenzie 2006) Integration similarmanagementMcGwynne to the andsteps incorporate McKenzie of estuary closely management(2006) related state principles. asthat indicated the Theprocesses in five Figure phases 8.of IDP of IDP development development and are estuary broadly TRAINING COURSE MANUAL page 28 AACIT December 2006* UILDING PROGRAMME PreparationPhase O: 1. estuaryEstablishment management of an Forum PhaseAnalysis 1: 2. Analysis (assessmentcurrent state of of estuary) StrategiesPhase 2: 345.vision, Development objectives andof strategies PhaseProjects 3: management6,7,8. Selection actionsimplementation and of (projects) IntegrationPhase 4: 9. Monitoringof management the impact action using indicators ApprovalPhase 5: 10. Auditingachieving to evatuate the desiredprogress towards state Figure 8. Comparison between the processes of lOP formulation and estuary management. (McGwynne and McKenzie 2006) TRAINING COURSE MANUAL page 29 estuaryIn the ideal environment situation, to a identifyformally problem constituted areas estuary and develop management a vision forumfor the conducts estuary. Thean analysis forum outlines of the December 2006 shiftingmanpowerprojects.and evaluates the Unfortunately, andresponsibility a funding. range of Linking the forpossible estuaryimplementation the actions estuary protection to management achieveof to projects the thelocal byvisionprocess municipality, forums and with presentswill the wherebe municipal curtailed these it legitimately as IDP by clearly limitationsprocess belongs, defined and in wayTurpieis essentialin etwhich al. (2006) theyto ensure will state be that thatmanaged. protection several These types measures inof turnplanning are determine put affect in place ultimatelythe (McGwynnefuture theof estuaries type and and McKenzie andamount determine 2006).of goods the and(2006)Planning services categorise sets that the estuaries conservationthe different can deliver types and development toof society.planning into objectives the following and goals groups, of definedall of which areas. are Turpie completely et al. interdependent: WaterdelineationConservation resource of protectedplanning: area the classificationidentificationnetworks and oftheir importantwater buffer resources areas; areas for(rivers, biodiversity wetlands, and estuaries the spatial Land use planning is seen primarily as a spatial expression of conservationperiodDevelopmentand and groundwater) development and in a planning: defined in terms area. the of identificationtheir future health of development status and allocation goals and of directions water; and for a defined planning,Landmanagement use planningthough gives both effectin South of to these these Africa areplans is also becoming at therelated estuary more to waterlevel. strategic resource and forward planning thinking (Figure and 9). is now an Finally, urbanSDFsDevelopmentintegral willedges, part provide of specialFrameworks the indicativedevelopment development (SDF5) plans planning thatwhichareas show areandprocess. the alignedconservation preferred with their patternsworthy Integrated areas. of land Development use, directions Plans. of growth, These All municipalities are required to draw up Spatial In drawing up these plans, Thus,ultimatelymunicipalities instead encompass of will following be obliged all the areas toad consider hoc of the process country.sustainability of the past, issues it is and envisaged safeguarding that land the environment. use planning will Moreover, planning at the municipal level will be requirementsustainablebeintegrated obliged withto fordevelopment align spatiallocal these level and plans planning anddevelopment with bio-regional tonational take planning regional and planning. provincial conductedconservation strategies at broaderplanning on socio-economic scales,initiatives as intomunicipalities account.development, will In addition, it may soon become a legal TRAINING COURSE MANUAL page 30 Conservation December 2006 Y.G PRO Water resource planning planning Land use plans Management plans Figure 9. Links between different types of planning that affect estuaries (Turpie et aI. 2006) Development planning levelultimatelywaterAt a broader development demands take spatial into in initiativesrelationaccount level, development tothe will supplies economic thus eventually acrossplanning costs the to needwill aquaticcountry. have to take toecosystems, take these into broader account including scale the estuaries. effectconstraints on overall into Decisions about water allocation will Local ThereuseApartconsideration. within from is huge andcatchment adjacent demand level to for estuaries. considerations, the construction Planning land-use affects of marinas planning the extent and also tohousing whichhas important estuaries developments implications can be whichdeveloped. for alterland 6.3.2paramountestuarieshydrological also importance patterns affects andthe is thenumbersrequire overall the and level hardening types of access of usersof the to estuaries.thatestuary impact edge. directly The levelon estuarine of Strategicdevelopment biodiversity. Adaptive around Of Management Approach andsouncertainty.In itsas less simplestto predictresponsive The terms, the term consequences(Hay adaptivestrategic 2005). indicatesmanagement of management that, isin athis process actions. process, ofThis managingone makes should management and look learning forward more ininto situations thepredictive future of The basic steps in SAM are (see Figure 10 below) (Hay 2005): acceptablesystemVisioning. to beUnderstand, vision managed, of the withfuture.and stakeholders,the principles/values the social, that economicguide management. and ecological Develop context a broadly of the ExpectbasedsequentialTranslate ecosystem the vision reasoningunexpected. into outcomes. ecosystem used Use in a translating variety goals. of Develop tools a broad (Scenario an societal objectives planning, values-based hierarchy systems visionthat thinking, documents into science-models, the - predictScopeandhistorical their (formallythe implicationsrecords, range or etc.) ofinformally) managementfor to management scope their the likely range, options towards outcomes and to thelikely achieve desiredunder spatio-temporal thedifferent future desired conditions. scenarios. limits, future of conditionsunusual events and TRAINING COURSE MANUAL page 31 CAPACITY BUILDING PROGRAMME managementSelect and implement options provide the best the options. best potential In co-operation learning opportunities, with stakeholders and social-ecological decide which December 2006 intervention.modellingMonitorsystem outcomes. and and Weighaudit surveys achievements. this response to understand against Use asystem therange desired ofresponse research outcomes. to projects, natural flux traditional and management monitoring, s toresponses,WhatReflect achieve does at themeach (3)knowledge how are.step. realistic Is gained thinking the telldesired and us actionabout outcomes (1)congruent our are understanding and with (4) principles,how useful of the thevalues ecosystem, processes and vision? (2)used its STAKEHOLDERS the ecosystem desired conditions of which reflect the Setdesired operational goals conditions Measure goal attainment sustain theDefine desired possible conditions managementactions to establish and Implement IJi proposed managementPredict actions consequence of the STAKEHOLDERSEvaluate acceptability ofmanagementconsequences action of McGwynne and Adams (2004) describe if?how strategic adaptive management can be applied toFigure the 10: The adaptive decision making/problem solving cycle (Hay 2005) estuaryleadsprocess management to ofthe estuary determination forum. management This of ais visionfollowed (Figure or byfuture11). an The assessment procedure of thestarts current with statethe establishment of the estuary ofthat an desired state". This state is ultimately described throughprocedurepointsecological, the developmentis social cyclic and and institutional iterative of objectives by end-pointsnature. that lead to a series of operational goals thatare define identified specific and evaluated by examining the potential consequences of each one. The . Possible management actions to achieve these end- TRAINING COURSE MANUAL page 32 CAPAITY.,B(U LI,:1N.G.PROG,R.AMME December 2006 management (omm tobroad represent spectrum the of stakeholders 1. Constitute an estuary 2. Assess currentthe stateecosystem, in termS institutions of and society twsrds 10.attainment Auditing of (evaluate the future progress desired state) 3. DefIne the vision i future desired state leadingthat to operational depict the 4. futuregoals Compite (TPCs)desired oblectives state hierarchy 9. Monitoringof (measureoperational achFevemerit goals usingdata indicator assessed against TPCs) ]hypothesis testing] actions to achieve5. Identity arid possible maintain management the future desired state r through6. Evaluate predictingresponses management environmental using actions conceptual or 7. Select management action(s) 4 [Rypothesis formulation]simulation models There are various tools that can beFigure used 11. to predictAn estuary the cause-effect management relationships protocol that (e.g.proposed incorporates predictive for South the monitoring African estuaries protocol (modified from Rogers and Riggs 1999) 6.3.3objectivesprocessinnumerical achieving Framework evaluates modellingand an operational operational progress or under using goals. goaltowards expertNational is followed opinion)the desired Estuarine through to guide state monitoring, decision-making.Managementand, if necessary, using specific ProtocolThe leads effectiveness toindicators. an adjustment ofAn an auditing action of the TheThisdevelopmentbased Protocolsection on thedescribes views planning principals management the in ofthatproposed strategic the as thrust anNational adaptive iterativein both Estuarine processesmanagement process Management and is strategic. conforms(Van Niekerk Protocol closely and to(Figure Taljaard that for 12), 2003,integrated which 2004). is TRAINING COURSE MANUAL page 33 Scientific research input is used to guide the process where required and to analyse (audit) data adaptivecollectedDocumentation management during monitoring. of the (as process opposed This and inputto communicationreactive) essentially can proceed. providesof the results the basisare essential upon which for building the process a legacy of of TheEstuarineknowledgeInteraction different Management and betweencomponents promoting Protocol.stakeholders, theof the ideal management ofmanagers learning andby protocol experience, research follow is especially thusa cyclic, critical adaptivefor during long-term allmanagement stages projects. of the 6.3.3.1approachStrategic and vision are described and objectives in further needdetail below:to be set for both the biophysical and socio-economicVision and objectives Strategicenvironments. visionvision The and and objectives objectives objectives are are set set at on two a levels,national namely: and/or provincial/regional level. Estuaries do not integrity).levelevenoperate toglobally ensure in isolation, (e.g. overall fish but sustainability and are bird connected, migration). (taking albeit into As accountaindirectly, result, socialcertain to other equity, objectives estuarine economic need systems growth to be setinand a on regionecological a higher and socialLocallong-termLocal equityvision vision andsustainabilityand and economic objectives objectives ofgrowth. estuaries, are site-specific a balance and needs need to be reachedset for individual between estuaries. ecological To integrity, ensure nationalltauthoritiesand is crucialcommunities and tothat regional act the in cannot avision governmentbottom-up" andtake objectives the approach. departments. initiative of thewhen lower appropriate, tiers of government i.e. forcing are national aligned and with provincial those of In addition, the vision and objectives set forHowever, a particular this does not mean that local authorities Aspectsinclude:estuary that by mustthe various be taken management into account and when control setting authorities local ecological should also and be socio-economic in alignment. objectives OpportunitiesCurrent/potentialLimits of acceptable and activitiesgoods constraints. change and posing servicesand carrying threats provided capacity basisLimitsi. for of acceptablethe local vision change, or management for both the objectives. living and non-living ecological resources,Limits must of acceptable form the change and carrying capacity Objectives based on resource limitations, will TRAINING COURSE MANUAL page 34 necessaryensure that goods expectations and services. of use are aligned with the natural environment's ability to provide the A newalsocarrying bemethodology addressed capacity of using, called protected for Limits example, areas of Acceptableand the otherStrategic sensitive Change Environmental sites. has Thebeen Assessment effect developed of cumulative methodology. for assessing impacts themust facilitateprovidedResource decisions by Economics an estuary. around provide theThese optimal valuesthe usetools provide of that estuaries allocate a common and economic for denominator setting values management in to terms theGoods goodsobjectives.of financial and and Services servicesvalue, to themselves.impactsMost activities on other that goods pose and a servicesrisk to the to beprovision identified. of goods and services are goodsActivities and posing services threats in Explicitly listing activities and their associated impacts allows the direct and indirect achievedQuantification by a sequential of the interactions cause-and-effect between analysis the various using usersthe Driver-Pressure-State-Impact-Response and functions of Opportunitiesthe estuary can and beConstraints techniquesandanalyseapproach. services, the Thecan existing within Strengths-Weaknesses-Opportunities-Threatsbe used thesituation tolimits discriminate andor carrying make between forecasts. capacity various ofTo the decide options. natural on (SWOT) environment,the optimum technique combinationmulti-criteria can be applied ofanalysis goods to needsy.Ultimately, to be defined. a vision Forfor athese particular objectives estuary to withbe implemented site-specific effectively,ecological andthey socio-economic mustSetting be presented local objectivesvision in anda objectives 6.3.3.2specificmeasurable target format values for or bothranges. the biophysical and socio-economic environments, e.g. indicators withManagement strategies guideManagementNational/Regional management Strategiesstrategies management on arealland levelsdefined plans strategiesto shouldat ultimately two levels,be developed achieve namely: theon nationalStrategic and Vision regional/provincial and Objectives levels set for to estuaries.DetailedLocalnecessary management management guidelines strategiesfor national,strategies regional and plans (provincial) must beand developed local initiatives. on a local National/regional management strategies need to be elaborate in order to provide the level to guide local which,includingestuary,managers in taking turn,an to estuarine achieve mustinto account be zoningsite-specificincorporated national/regional scheme, ecological into should Integrated management beand incorporated Developmentsocio-economic strategies. into Plans an objectivesLocal Estuarine (IDP5) management or setManagement Municipal for a strategies, particular Coastal Plan Management Programmes for the area. TRAINING COURSE MANUAL page 35 6.3.3.3 Planning and Implementation andthatquantity,Planning aroundneed landto estuaries. andbe usetaken implementation and into infrastructure consideration primarily development in therelate planning to the or and actionsexploitation operation (categorized of activities/developmentsmarine into living water resources) quality inand Planning and implementation typically include the following steps: Step 1: Pre-application consultation and Submission of application Step 5:4:3:2: OperationsDesignSettingImpacts of Assessment orCritical Operational Limits for Management Activity/Development Plans and Environmental Management Plans Implementationimplemented.construction of a refers development to the phase has been completed, i.e. when the operational management plans are Despite following the proper route in terms of, for example, impact assessment studies in which a project has been commissioned or in which the thephases.operationsand operational the design can procedures still of operationalresult also in detrimental needs management to be impacts considered plans, on the innon-compliance theenvironment. monitoring, Therefore, assessmentwith these the plans and effectiveness evaluation during the of 6.3.3.4Monitoring can be divided into: Monitoring toStategicStrategic monitoringestablish monitoring monitoring natural programmes variabilityrefers areto monitoring andusually trends those programmes as which a result are of throughused human for which Stateinterference. long-termof Environment Data data collected setsReporting. are from collected such primaryCompliance aim ofmonitoring monitoring these monitoring is related programmes to specific activities is to establish or developments whether the in operationand around of estuaries.such activities The economicand6.3.3.5 developments objectives complies of the estuarine with pre-deterrnined environment on critical which limits,it may andhave with an impact.the ecological and socio- Assessmentspecificmanagement activities/developments. and process. evaluation Assessments and evaluations are performed at a strategic level, and alsoAssessment on and evaluation is the feedback loop that ensures the ultimate success of the TRAINING COURSE MANUAL page 36 StrategicReporting)Strategic assessment assessment are required and and to evaluationestablish evaluation the (e.g. degree State of long-termof Environment natural Reporting variability, andas well State as ofthe the potential Coast AssessmentAssessmenttrajectory of and change and evaluation evaluation associated of specific of with specific human activities/developments, activitiesldevelopments interference. on the other hand, entail compliance welltesting as against criticalmeasurable limits ecologicalset for processes and socio-economic and actions associated objectives withset forthe a activity/development, particular estuary. as STRATEGIC VISION & OBJECTIVES MANAGEMENT STRATEGIES Sb 4a5onI N,aviaì Svvana5,4*0., and 04)04* & naaan-duonn.,n na1nnt,.0 Io4*ngiokonaoon(S.* b Looral 5*4(0., andfl50001 ObJantian, & a.,onoo ob)ndnns orant na',nnIg rapadas *0 f NatIon.I Praendal Managenlont 51,3*0 51,01.91,gO*1,4*.,.,,InoaSna 5C5350 nanagn,nentstlotog,os& ttCatSgin a4.ctr,er e g rIais Lnaa34000*a.rnbn'4*.a,4,ahab1MabonFnoat,4*nnernr (05.1 na 5*0*0*0*1b.ødç.erMy dovelopn,enl. - (ant., nl Cn.ntGndavad p**0nanonto 40,-anno p,ov,dod 's SR EnIuavr,eZo0.ngCr50,0.., Monagonoal scsannl Plan. nund*np Lonot M303gen,ent &4*aiegao Sasann DEA* SWAF4*uaopodn l?bys,cOp*oSnnt.nn COR & *0,0.1,0*00. ub>In5.VÇ*0*0n Ot:nçnn,s ana lnÌogtoa OnaSnanentn., and i a, Coastal Managnn.00t -I Na,,.co*,,pj* ASSESSMENT & EVALUATION fla*;k,*s5. O OPERATIONSPLANNING & 'V ( lotrJ5nsnu,p Antnn504 D.p.lrpnn.nt 'istter onann' 501*5mg RegOstO, -'t even, o(upØnaInn Now Activities (Ir Devclopment Assessment of limits or Objectives, co,ltinbeCompiianc with Gñt,cu! wth monitorinq snlç*0gai1,rltn CpeIO(nmS la'1eronoC sann çrn, Mor eananl Pint, MONITORING Figure 12. Proposed National Management Protocol for Estuaries cmftnr nrsnitoring incIuthng Baseline surveys)Stss2c mcintSsnq TRAINING COURSE MANUAL page 37 6.4 Generic management approach CAPACITY BUILDING PROGRA December 2006 Asconsisting can been ofseen the fromfollowing the preceding generic elements discussions, or steps, estuarine namely: management comprisesSetting a cyclic of processa vision and objectives; AssessingMonitoringIncorporatingDevising management the and the effectiveness evaluating objectives strategies ofandthe strategies, monitoring strategiesto achieve plans into theresults planningandobjectives; operations; in terms and implementation; of objectives, strategies and The cyclic process involved is illustrated as follows: Re-visitingoperations; theand vision and objectives. OBJ ECTISTRATEGIC VES VISION & ASSESSMENT &EVALUATION STRATEGIESMANAGEMENT & PLANNING MONITOR IMPLEMENTATION authority]migration),Vision and (e.g. objectives; therefore, international, Estuariescertain national objectives are orconnected regional). need within toVision be aset and region by objectives higher and even tiers for globallya of particular [government (e.g. estuary fish and- rather:(set bird by powers),"bottom-up"andlocal communitiesdecision-making no interestedapproach. can platforms)party takeAlthough is the precluded initiativemustlead responsibilitybe from alignedand the force initiating with should higher these process lie tiershigher with of - an 'getlevelgovernment organ the objectives. ball of rolling'.state to actLocal (with authoritiesexecutive by using a ensureAtplansManagement local that compliancelevel, are primarilydetailedstrategies with strategiesaimed andthe visionplanning:at providing and and plans These objectives general identify are protocols national, setthe forsite-specific aand regional specific procedures managementand system. provincial to guide Local actions localstrategies management initiatives. that andwilt TRAINING COURSE MANUAL page 38 Coastalintostrategies Integrated Management and plans Development needProgrammes to be Plans consolidated (CM (IDP), P). Catchment into an Estuarine Management Management Plans Plan (CMP) and and subsequently Municipal standardized,developmentsImplementationprovide clear effective guidance ¡n refers and and aroundto environmentallyto actions ensure estuaries. undertaken that actions sustainable. Ideally, as undertaken partlocal of management operational during the management strategies implementation and of plansactivities phases and are should taketrendsmanagementMonitoring: into and account status The strategies main ¡nthe ecosystem above-mentioned purpose and plans, ofhealth monitoring compliance and desired services. is to with enableoutcomes Therequired continuous design and implementation of not aevaluation monitoringjust monitor actionsof programmethe for effectiveness andthe long-termsake must of of andauthorities/institutions/industries,defensiblemonitoring. financial inTo resources. cases assist ofin non-compliance.management, efforts monitoring should Lastly, be procedureswheremade tomonitoring consolidate must be responsibilities scientifically them for optimal sound lie use with to ofbe different human legally managementApproach',achievingAssessment defined i.e. andactions as moreevaluationobjectives accordingly, information anddepend strategies. basedbecomes on onthe available,theThis results new process offindings. managers monitoring also The requires should jointto inform decision-makinganadapt Adaptive progress strategies, Management in platformsplans terms and of inexecutive(forums 6.5fulfilling or powers thecommittees) role usuallyof 'watchdogs' play reside a leading with or 'custodians', authorities, role in the as jointassessment part decision-making of the assessmentand evaluation platforms and phase.Additional evaluation can beAlthough very phase. effectiveIn (legal) formation Additional on governance and management of estuaries include: Ashton,Frameworks P, MacKay, for the H, Neal,Environmental M & Weaver, Governance A 2002. The Systems Development and Biodiversity of Strategic ProtectionInvestment & AfricanVanPretoriaEnvironmental Niekerk, estuaries. L & Taljaard, CSIRFunctioning Report 5 2003. ENV-S-CThrusts. A framework Draft2003-077. for for Discussion. effective Stellenbosch cooperative Water Research governance Commission, of South ResearchbetweenintegratedPoliciesMcGwynne, and researchers Commission.development proceduresL and McKenzie, and planning for authorities incorporating M, and 2006. related at Objectivelocal, information processes 1: andare establishedknowledge onthrough estuaries collaboration into the district and provincial levels. Profiling estuaries in IDP planning. Draft Water TRAINING COURSE MANUAL page 39 7. SUPPORTING MANAGEMENT TOOLS Asconsisting can been of seen the following from the generic preceding elements discussions or steps, namely:estuarine management is Settinga cyclic of process a vision and objectives; AssessingMonitoringIncorporatingDevising managementand the theevaluatingeffectiveness objectives strategies of ofand monitoring strategies, strategies to achieve resultsplans into the planningand objectives; in operations;terms and of implementation;objectives, strategies and The cyclic process involved is illustrated as follows: Re-visitingoperations; the and vision and objectives. OBJ ECTISTRATEGIC VES VISION & ASSESSMENT &EVALUATION STRATEGIESMANAGEMENT & PLANNING MONITORING 4 IMPLEMENTATION inManagement effective implementation tools refer to anyof the available estuarine protocols, management guidelines, process methods and procedures that will assist Management tools were sourced from: ProceduresNational and and regional methods government currently documentation;applied to South African estuaries; and Variousbelow, tools organized available in terms to estuarine of the five managers generic management in the execution components of the genericidentified steps above.Relevant are discussed tools currently applied internationally (where readily available). TRAINING COURSE MANUAL page 40 7.1 Vision and Objectives December 2006 managementecosystemThe7.1.1 National Resource basis. Water strategies, ActDirected (Act the 36 National Measuresof 1998) Watercalls Methods for Resources integrated Strategymanagement (NWRS) of water and resources the Catchment on an The Act prescribes a two-tier approach to the development of water resource waterTheofManagement a resources catchmentNational StrategyWatermust management be Act managed.(CMS). also agency providesThe The NWRS within preparation for setsitsthe particular integrationout of the a CMS, macro-frameworkarea of ofon water jurisdiction. the other resource hand,within management iswhich the responsibility South andAfrican co- whichreductionrivers,operative includes wetlands, ingovernance water the two-prong use).estuaries via the approach and NWRS. groundwater) of The Resource latter sets and Directed a Source framework Measures Directed for water(e.g. Measures for resource the management (e.g. management, of recycling, environments.developingmanagementFollowing a framework of rivers, wetlands, to assess estuaries potential impactsand groundwater of freshwater as it reduction on the coastal and marine is a brief overview of the approach of Resource Directed Measures used for the provides a good starting point for Resource Directed Measures incorporate the following concepts: TheResource ReserveClassification Quality (the basicof Objectives,the human water bodyneeds e.g. beingEcological reserve managed and Specifications the (condition ecological (managementor reserve); health status). objectives); and TheinThe Reservequestion basic needs andconsists includes reserve of two potableprovides parts water- forthe the Basicand essential water Human required needs Needs of for individualsReserve the preparation and served the of Ecological by food. the waterThe Reserve. Ecological resource varypartresource.Reserve depending of any relates The significant on Reserve the to theclass water refersamount of resource. the both resource. of waterto the Therequiredquantity DWAF andto isprotect qualityrequired theof to the aquatic determine water ecosystems in thethe Reserveresource, of forthe and all water orwill objectivesestuarinemanagementThe Reserve, betweenmanagement. toolsResource asdifferent they Quality These apply management Objectives to tools more can authorities.than and be justthe used Ecologicalthe toWater set QuantityClassification and Qualitycan all beaspects used asof the overarching management estuarineavailabilityIncreased7.1.2 Sustainableliving levels have resources highlightedof exploitation, use (Wood, protocol the Cowley illegalneed forfishingand management Paterson activities 2004). and to ensure declining long-term levels of sustainable estuary resource use of TRAINING COURSE MANUAL page 41 As part of the Eastern Cape Estuaries Management Programme, a procedure was developed that byforlivingidentifies localenvironmental resourcesmanagers environmental, (resourceinon estuaries. a variety andsocio-economic ofIn ecosystem estuaryorder to categories address level), and institutional socio-economicthese based issues, on mouth issues management and state that institutional andaffect guidelinesuser the issues,dynamics. sustainable were to be proposed used use of formulated.A totalmunicipal of 10 regions,Aresource, Rapid based Assessment 8 ecosystem, on a subjective Matrix 13 socio-economic (RAM) assessment was proposed of and certain 18 institutional tokey identify indicators. priorityrelated An Ecosystemestuariesguidelines within wereBased Managementguidelinesenvironmental,7.1.3 and (EBM)the social degree approach and to institutional which sustainable indicators, use has of the been effective achieved implementation on a specificBiodiversity estuary. of the proposed protocol is suggested for the detailed assessment, through rating key Turpiecoastaldemandsservices (2004) zone. society for emphasises water, depends catchment that on the is degradation, underestuarine threat biodiversity anddue development,to numerous base that factors, populationprovides including the growth numerous increasing and poverty goods national and in the Current protected area systems offer little protection for estuarine biodiversity, with whereincreasingestuariesalmost considerable no is estuariesexponentially fair overall, degradation being and and protected suggests may has soontaken from that have place, consumptivemany a seriousand estuaries ¡t is use.impact, concluded are Despite quite given thatrobust. this, the the currentthe However,threats current status to healththereestuaries of protection. are status areasare of Thus,The thereproposed is a need goals to for develop the protection a sound of strategy estuarine for biodiversitythe protection are of as estuarine follows (Turpie, biodiversity.Maintain/restore 2004): the ecological integrity of estuaries, by ensuring that the ecological representativeMaintain/restoreecosystemsinteractions are among setmaintained. the of estuarieshealthestuaries of estuaries andis maintained those in/to between ina goodas close estuaries, to excellent a state their as condition, possible catchments ensuringto their and pristine otherthat a state. This includes (for all estuaries): maintenanceprocesses within of the estuaries; naturalnatural magnitude,characteristics variability and variability and frequency of estuarine of natural populations physical indigenousmaintenanceutilization;and communities and taxa of from the in terms naturalany estuary of taxonomicsize, other structure than diversity byand natural functioning, of all processes, estuaries, through andwithout sustainable without loss the of drawingConsidering from internationalthese goals experience,in the light offive current core components and anticipated of a strategy future threatswere identified to biodiversity, as follows. and introduction of alien species. Turpie (2004) proposed that three types of estuary management should be considered: a. providingEstuarine protectionProtected Areasfrom consumptive (EPAs), in which use. part or all of the estuary is a sanctuary, EPAs should be selected with both biodiversity representation and socio-economic considerations in mind. TRAINING COURSE MANUAL page 42 APACITY BU1LBING.PROGRAM December 2006 to Estuarineregulationestuaries usedManagement isConservation augmented primarily Areasfor byAreas recreation. estuary-specific (EMA), (ECA5) to which - co-managed regulation. general regulation Theseestuaries are applies particularly¡n which general suited theIn order following to alleviate conditions the threatsand incentives to estuarine that supporthealth, especiallyconservation where were regulatory proposed mechanisms (Turpie 2004): are weak, catchmentIncentives for improving quality and quantity of freshwater inputs. These include level water demand management (pricing incentives), and supply off,managementSensitive e.g. tradable planning. through pollution incentives Threats permits. tofor estuaries improving need quality to and be takenquantity into of catchmentconsideration run- ¡n sale)resourcesPropertyregional-level should rights, should bedevelopment allocatedcommunity be reduced. plans,to veryparticipation Commercial as few well users as municipalexploitationand per co-management. estuary. plans. rights Community (e.g. baitOpen participationcollecting access for to Easternthatmustshould the be be Cape.conditionsapplied maximised, with for extreme successfulcommunity care co-managementmanagementand only if certain is not are conditions advised, generally areand unfavourable met.co-management in the lt is argued beofinPoverty the seen faceconservation alleviationas of a poverty,route and ofto biodiversity.povertyand alternative poverty alleviation livelihoods.However,alleviation in highly estuarine programmesNo conservation populated resources are areas. strategythus themselves anIn this essentialcan situation, succeed cannot part InstitutionalunderstandingCommunication,creation of alternative support. is critical No livelihoods toconservation the success would strategy of be a aconservation better will succeedstrategy. strategy. without strong institutional education and awareness raising. General awareness and This7.1.4 primary goal of this study was to develop a generic co-management system Genericfor Eastern Co-management Cape System support. structure;throughstructureEstuaries, agreements is and based with at resourcethe on potentialthethat premise regulate management for thatapplication the co-management establishment level through occursandconstituency operation at two principalagreements of an estuary levels: that managementat regulate policy level the to other South African estuaries (Sihlophe 2004). The processInmanagementperformance the course as co-management structuresof thisspecific study, are management itoutlined. was occurs concluded within functions. that the Integratedcontext Processes of Development an to OPfacilitate and the Planningeffective system (lOP)functioning comprises is key ofto the co-the thatdevolutionactivitiesstructures, are prerequisites with ofprocesses, responsibility an integrated for principles achieving with process accountability, and sustainable agreements.that would anduse help The(Sihlophewould to proposed build promote 2004). shared system learning understanding, can and be adaptiveused to would alignmanagement facilitatedifferent TRAINING COURSE MANUAL page 43 7.1.5 Rehabilitation protocol systembad,applicableRehabilitation i.e.in order prevention to estuaries to is regain about is better issomepromoting to try than of and the cure. the preservevalue recoveryAs thesuch, what system ofthe is ecosystem conservationstill had in togood society. functions condition of existing A key and before rehabilitation habitats values trying isin tocriticala principle degradedfix what to the is goodsuccessfulrehabilitation,estuary condition rehabilitationin the than it worst is to it tryis of conditionfarand estuarine more fix what effióient should habitats is already tobe in preserve considered general.degraded estuariesContrary (Marneweck, for priority to and the sections Batchelor commonattention of assumptionand whenestuaries Uys 2004). that theare in it comes to thisencompassesA conceptual process could frameworka number be undertaken of was steps developed and by anactions estuary for that rehabilitation manager, have feedback there are,loops. however, While most elements of the that steps may in at an individual estuary level that managementtheinrequire incrementalthe development more is specialisedadapted. development of an scientificestuarine and improvementand rehabilitation social skills. processof ltthe is importantframework and, as such,to pointas provisionexperience out that should this is isgained thebe madefirst and step for (ecologicalhaveThe steps or are and and likely actions socio-economic) to occur in the andframework that of, andthe include benefitschanges (implicit derived have in or thefrom, could approach the in estuary) the is future that (Mameweck, changes impact onto the theBatchelor estuary value and Uys 2004): IdentifyingEstablishing the thea visionmain extent assets for and the ofnaturerehabilitation the estuary of the changes ofand the the estuary; thatthreats have to occurred;these; SettingDeterminingthreatsIdentifying, topriorities the screening whether assets; as to or whatand not selecting shouldthe sites be candidateare done compatible first; sites withfor rehabilitation, the vision; based on the perceived EstablishingDesigningDevelopingIdentifying projectsspecific and evaluation determining andto achieve measurablecriteria the the and feasibility objectives; aobjectives monitoring of strategies for programme; the rehabilitation aimed at meeting intervention; the objectives; performanceAssessingImplementing the standards the outcome monitoringproject were ofto thespecifications; programme;not project satisfied. and, and where necessary, taking remedial actions if the appearrangeSihlophe7.1.6 of to Biodiversity-basedeconomic (2006)be applicable in Turpie incentives and et relevantaI. in (2006)Enterprise different in differentstates parts Developmentthat contexts. of biodiversity the world. For example, Differentconservation somecombinations promotes incentives and are applies suitable a of incentives TRAINING COURSE MANUAL page 44 for application in the major part of the world, while others tend to be more suitable for application in December 2006 isTherethe possible developed are five to applyworld.main anycategories type of ofincentive economic measure incentives to any for group,biodiversity activity conservation. or sector, in While reality, in differenttheory it fiscalmostdepositscategories instruments relevant are have particularly in function developedparticular well applicable relevance incontexts. formal to marketsforinfrastructural, different - hence groups residential such and categories activities. and industrial of incentiveFor example, developments; measures bonds are and In rural areas, where communities live in areas of high foundmeasurehighbiodiversity, mostly dependence for in withbiodiversitythe majorlimited on the part economicharvestingconservation. of the world opportunities of biological -Property livelihood andresourcesrights, support infrastructural is for the income most development commonly and subsistence appliedand where -incentive conditions there is in particular, apply both to conditions in wayofapplicationdeveloped economicof ensuring contextsof incentives economic community and is incentivesto being thoseparticipation promoted prevailing for biodiversity and in appliedthe majorconservation in thepart major of theseems part world of to the asindicate theyworld. provide that Prominent a combination an effective among in biodiversity conservation. Evidence pointing to the therebythese,Livelihood particularly decreasing support in relianceAfrica, aims at is on strengtheninglivelihood biodiversity. support. livelihoods, It also aims diversifying to provide themoptions and that making reduce them vulnerability more secure, to supportlivelihoodsbiodiversitylivelihoodperverse activities incentives incentives. inbased the can hope activitiesthat be Direct encouragedividedthat, whilelivelihoodas intothey indirectpeople two become incentives broad tolivelihood engage more categories, focus insecure,incentives activities on thatincreasing people thatattempt is, directdegrade theto livelihoodstrengthen efficiency biodiversity. and andand Livelihoodindirect scopediversify of will rely less on biodiversity. VariousconserveEstablishment types biodiversity of ofcoastal local either enterprisesand asterrestrial a direct is one orresource indirect form of biodiversity-basedlivelihood livelihood incentive support enterpriseforincentives conservation. developmentcommonly applied exist. to whichmorebenefitsSihlophe directly effectively. from(2006) utilise goods categorises Non-linked the and goods services themandenterprises services intosupplied linked aresupplied by andthose the non-linked resource,by that the are resource notenterprises. directly with adependent Linked view that, enterprises onas usersthe goods are realise those and they will manage use of the resource Commonownersservices of supplied typesthe resource, of linkedby the thereby service resource, reducingenterprises but pressure that have on the been resource. established in estuaries and other coastal the aim of which is to provide economic benefits to local tourismestuaries,islandsareas in intrail various Thailand,canoe camps trailparts and horse enterprises, camp-sites,of andthe worldhiking that and, include:trails is, incanoe insome nearecotourism tours cases, pristine around whale enterprisescoastal the watching mangroves environs involving activity that and (Sihlophecomprise tourscanoe of trips the 2006).spectacular estuary,to small fly-fishingenterprisessubsistenceEnterprises operations, based and small-scale on beekeeping non-timbergoods supplied fishers enterprises, forest who by products the in turnconsumptiveestuary andmay andother sell coastal fishingtheir medicinal fishing resourceswhere plants rights fishing include:found among quota in non-consumptivethemselves,adjoining are issued forest. to and Although craft enterprises may not be directly associated with estuary resources, tourism activities that TRAINING COURSE MANUAL page 45 December 2006 J realisedOthertake place enterprise that in low-impactand aroundactivities ecotourism estuaries which alsoprovide enterprises take a placemarket such at for asestuaries craft those produced found include in by estuaries bird local watching. community have to lt diversifyshould members. be in Thereatcommonorder Mtentu appears to establish thatestuary a to combination be(Sihlophe income growing streams2006). of concernecotounsm that among ameliorate activities both would the practitioners variability take place of and atincome one researchers estuary flow. Therefore, as itabout is intended the it is thebiodiversity-basedsustainabilitybiodiversity rural poor, ofconservation.evidence biodiversity-based enterprise of this While development,phenomenon the enterprise intention appearswhich developmentis to would support to be continually limited. theand establishment therefore yield benefits of viable of conservation and sustainable to its potential to promote andofStrategic 7.1.7the addressing Environmental StrategicEnvironmental the Environmentalpotential Impact Assessment Assessment impacts (SEA) Assessmentof atool. isplan, a tool policy aimed (SEA) or atsuite addressing of proposed the project activities. specific shortfalls Essential SEA is a process aimed at understanding There are havedifferent the followingmethodologies characteristics that can as be identified employed by inthe implementing CSIR (1996): an SEA. However,"Pro-active an SEA and should informs development proposals AssessesAddressesIs a continuing the areas,cumulative effect process regions of the impacts aimedorenvironment sectors at and providing of developmenton development information needs at the andright opportunities time identifies implications and issues for sustainable CreatesWidedevelopmentFocuses perspective a framework on maintaining and against a low a levelchosen which of impacts detaillevel ofto andenvironmentalprovide benefits a vision can quality andbe measured". overall framework unsustainabletheofEstuaries 7.1.8which impact takeMulti-Criteria are of placevery developmentplans, susceptible at policiessome Analysisand distance to andactivities cumulative future from prior thedevelopments environmental toestuary application. itself). onimpacts SEA ari estuaryis from a very a varietyanduseful can toolof beactivities for used considering (manyto flag approachMCApreferredMulti-Criteria approaches tooption MCA Analysis where (Mckenzieare essentially refersthe preferred2006). to designed any optionsanalysis to address need approach to complex be evaluatedthat problemshas been using and designed more there than is tonot one determine one criterion. defined a theanalyses(UNEP/MAP/PAP,To natural decide environment,be on the the economic optimum 1999). multi-criteria valuecombination of the techniques resource of goods can and and be the services, used goods to discriminateand within services the limits between provided. or carrying various capacity options of It is strongly recommended that one of the criteria included in such TRAINING COURSE MANUAL page 46 December 2006 7.1.9areMCA trying is Limits a touseful contribute of tool Acceptable for to comparing more than Change onecompeting estuary options management in estuary objective management (McKenzie where 2005). these options resourceLimitsplacedestablishing of on Acceptable centred isthe LACs.acceptable natural approach Setting Change resource before LACs (LAC)to dealing in actionis question isalso a tool shouldwitha partially forby cumulative defining thebe subjectivepeopletaken. how impacts. setting much process changethe thatLACs. orwill degradation reflect the valueof a natural that is There are no set methodologies for Rather than considering if an Importantly, LAC is a furtherLACindividual activities¡s a useful activity (McKenzie mechanism is acceptable 2005). for estuaryor not, LACsmanagers define that when are concernedthe resource about will nocumulative longer be impacts able sustain on an inLACsaestuary. cutadvance offdraw pointAs byaLACs clear forthose various are line interested defined at activities,which for in further pursuingthe without natural activities thesedebating resource canactivities nothe itself, longer merits (Mckenzie they be of approved,individualconstitute 2005). applications.awhich useful can tool be for understood signaling In addition, setacceptLimits of conditionsof and Acceptable then thatdevelop Changemay "onnot theinvolvebe exceededground" a process standards and needswhereby for to maximum bestakeholders tested acceptablewithin identify the context impact. the impacts of This South impliesthey African can a Thresholds7.1.10estuaries Thresholds atof bothPotential the public ofConcern Potential and statutory(TPCs) Concern arelevels a more (Boyd flexible et aI. 2000). variation of a LAC. TPCs are tools for investigatedLACsconcerneddefining as how they about further, much act this as butchange changesignals they docan andto not takemanagement considernecessarily place intaking arequire thatnatural action. the action resource state As to a be ofresult, thebeforetaken naturalTPCs (Mckenzie management are resource more 2005). flexibleneeds should tothan be be theunderstandingimpactsLike estuary. LACs, ori anTPCs estuaryof theare functioning a and useful they mechanism areof the useful natural for estuarysignalingresource managers possible(Mckenzie problemsthat 2005). are concerned with regards about to thecumulative state of As TPCs are more flexible, they are useful when there is uncertainty or limited involvesofStrengths-Weaknesses-Opportunities-Threats 7.1.11contexts, identifying Strengths-Weaknesses-Opportunities- such as the strategic following planning elements: and business (SWOT) assessment isThreats an analysis (SWO(McKenzie tool T)that 2005). can be A usedSWOT in analysisa variety Weaknesses:Threats:Opportunities:Strengths: The The The future, The current current future, existing strengths weaknesses existing or external that or external thatcan threats canbe identifiedopportunitiesbe that identified can be thatidentified can be identified TRAINING COURSE MANUAL page 47 appliedestuary.SWOT7.1.12 ¡sto. To aDriver-Pressure-State-Impact-Response useful use SWOT tool for successfully analysing a planit is criticalor understanding to clearly Approach definethe current what management the SWOT analysis approach is forbeing an isapproachachievedQuantification a tool for by(UNEP/MAP/PAP, understandinga sequential of the interactions cause-and-effect why 1999). human between The Driver-Pressure-State-Impact-Responseimpacts analysis the various take using place usersthe Driver-Pressure-State-Impact-Response and and how functions these ofimpacts the (DPSIR) estuary relate approach can to the be (Mckenzieenvironment. 2005): PressuresDriving forces on theof environmental environment (e.g. change discharges and pressure of waste (e.g. water manufacturing into rivers)lt is commonly industry) used in State of Environment Reporting. The elements of DPSIR are Responseconsumption,ImpactsState of the on of environment people, peoplecertain and fishthe (e.g. speciesgovernmenteconomy the unablewater and to quality the toecosystems tolerate impacts of rivers water (e.g. (e.g.and quality)cleaner estuaries) water production is unsuitable laws, for catchment human andDPSIR for isdirecting a useful them tool towardsfor helping possible estuary responses managers to understandthese environmental root causes problems. of environmentmanagement problems strategies) areLack7.1.13 not of asco-ordinated Stakeholdervigilant as communitythey involvement could be.participation This may is be a dueconcern. to stakeholder In some coastal fatigue areas, and the local perception communities that commencinggroupsstakeholderdevelopment in community groups, with stakeholder with forums. vested engagement Carefulinterests, consideration canor public often participation.override and planningthe concerns is therefore of weaker essential or less informed before will go ahead regardless of their concerns. Furthermore, the lobbying of strong Theengagement"levels" degree of topublic orwhich public participation stakeholders participation or should influenceengagement be: decision-making with stakeholders differs exists. widely. The Therefore, aim of stakeholder different Assistingcommunication)Raising awareness and increasing understanding between various stakeholders (two-way in the identification of key issues of concern and reasonable development PromotingInformingIdentifyingalternatives and sourcesdemocracy improving of information and decision-making ensuring and greater the knowledge credibility of and local legitimacy and other of stakeholders the decision-making IdentifyingcooperationGeneratingprocess creative a sense solutions of joint to responsibility problems for the environment and establishing trust and TRAINING COURSE MANUAL page 48 whichThe International represents Associationincreasing levels for Public of the Participation public's impact (IAP2) on hasdecision-making described a spectrum (DEAT 2002). of participation Elements spectrumconsulting,of 7,2this spectrum consult therange following from protest website: and http://www.iap2.org/practitionertools/spectrum informing (one-way flow of informationManagement to the public); to strategies and Planninginvolving, collaborating and empowering (information exchange). For more on this proposedforcrucialTo ensuredeveloping that and thethese present effective management be translated management implementation strategies into soundmeasures: of willmanagement the consist local ecological of strategies.legislative and It requirements. socio-economicis envisaged that Listed objectives, the basicbelow tools itare is whichIt is7.2.1 integraterecommended both ecological that Estuarine and socio-economicManagement Plans aspects be developed (Van Niekerk specific and toTaljaard eachEstuarine individual 2003, 2004).Management estuary, Plans (EMP) estuaries,InnationalManagement order toand/or deal Plan decisivelyprovincial can be andauthorities,gazetted, in a pro-active it shouldto ensure mannerbe alignmentformally with reviewed activities/developments with national and approved and provincial/regional byin andappropriate around Estuarine Management Plans should be formally gazetted. Before an Estuarine withinresourceprovideobjectives sectors the economic and ofcontext society strategies. specialists for (e.g. informed Suchbetween (to a providedecision review government theis making also context institutions).important regarding for informed to Furthermore,resolveecological decision potential objectives) makingestuarine conflict concerning specialistsand between social socio- (to andand Anstrategies,economic Estuarine asManagementobjectives) detailed by should Planthe Estuarine should be included include Management (Vanin the Niekerk review Plan, andcan process. Taljaardachieve This the2003): overallwill ensure objectives. that the local DetailsLocalthanDescription the vision on estuary how ofand the national/regional managementitself area for with management spatial objectives; objectives references purposes); are (boundariesto be achieved; of the system may be taken further DemarcationTypeGoodsExtent and ofand existingintensity services of dynamic and of provided use proposed or in hazardousareas by infrastructure;the zoned estuary; areas for specificnot to be purposes; developed; DetailedareaResenie (required complianceintegratedfor water under quantity monitoring planthe National and and the plan quality Watermonitoring (both and Act); compliance Resource thereof; and Quality baseline), Objectives including if determined the allocation for an of RecordDetailsAwarenessresponsibilities ofof theprocess and resource education and followed, an (both indication programmes includinghuman of and monitoringpublic to financial) be participation introduced; frequency; implications process. of plan; and TRAINING COURSE MANUAL page 49 ToMunicipalundercoastal ensure the management effective Systems Coastal governance, Act.Zone plans, Bill) such or Estuarineas as part the ofMunicipal ManagementIntegrated Coastal Development Plans Management should Plans be Programmes incorporated (IDP) as required (as in broaderproposed by the may,Part7.2.2 for of example, Estuarinethe Estuarine include zoning Management one orscheme more Planof the should following be (Vanan estuarine Niekerk andzoning Taljaard scheme. 2003): Zones in estuaries Areas,LimitedProtected Estuanne development zones, Conservation as wellzones, as e.g.Areas,degree camping Estuarine or class or caravan of Management protection sites; needed Areas (Turpie, (e.g. Estuarine 2004); Protected MaricultureBoatingRecreationalHigh density zones, areas. developmentzones, e.g. sailinge.g. bathing zones, or powerboat areas; e.g. residential areas; and and resort areas; willAt 7.2.3Plans.provincialpresent, become Integrated zonation ordinancesa legal requirementin Developmentand and around local and by-laws. estuaries form Plan partHowever, occurs (IDP) of the on itmore isa fragmentedlikely comprehensive that in or future ad hoc Estuarinezoning basis, plans dependingManagement for estuaries on amunicipality.The rangerequiresSystems legislative of sectors,Actthat An 32contextIntegrated each of such2000. local for Developmentas municipalChapter authority water, 5transport, planningofadopt Plan this is acta intended single,island deals provided use with inclusiveto andencompass byIntegrated environmentalthe plan Local and Developmentfor Government: harmonisethe management.development Planning,planning Municipals ofoverThe which that Act.principlesmunicipalities,Development The Local of this GovernmentFacilitation act both have Transitional also Act Transition been67 of Local incorporated1995 Second Councilsrequires Amendment into the(TLC5) Chaptersetting and ofAct 5 District Land(s 97 23 of Development(I)) Councils,1996 of the aLso Municipal draw requiresObjectives up SystemsIntegrated that and all the jurisdiction.above-mentionedAct,7.2.4Development which Spatial The is currently requirements Plans actsDevelopment isdriving (IDP5)the Department of the thisfor establishment Frameworktheact integratedhaveof Provincial largely and (SDF) development andbeenimplementation Local andincorporated Government.Land and of Usemanagement IDPs.in the Management TheMunicipal lead of agenttheir Systems System areasfor the of municipalitiesStrategicManagement land-use are Systems required planning (LUMs) to drawis as an part upintegral ofSpatial the IDPs.part Development of the development Frameworks planning (SDF5)(LUMs) process and Land and Use all TRAINING COURSE MANUAL page 50 December 2006B U I L D IN P R 0G RA MM developmentThenational SDFs and will provincialareas be plans and strategies conservation that show, on amongst socio-economic areas. other things, development, desired sustainablepatterns of developmentland use, special and lt is also required that these plans be aligned with rightsThebioregional land and use restrictions planning. management applicable system to each eri in the municipality. The plan should be flexible enough to comprises schemes recording the land use and development dependingsetsguideaccommodate7.2.5 out to developmentdevelopment,Catchment on the changing urban-rural rights andManagement priorities, the applicable nature scheme of the to (LUMS)Strategies each municipality, parcel is binding. of and land, Theits cancomplexity. land range use managementfrom simple to system, very complex, which but the scheme has to conform to the plan. The plan (SDF) is a andhavewaterThe Nationalthen been resources devolve established Water on authority aAct catchment as calls yet to for(2004), the thebasis. agency establishment the Although intention as it buildsvery is of that fewCatchment the regional Catchment capacity officesManagement to Management manage. of DWAF Agencies Each will Agencies establish CMA to manage will(CMA) them be which7.3.17.3required will Environmental include to develop the estuaries Catchment Impact of thatManagement Assessmentarea. Strategies EIA for the water resource underImplementation its jurisdiction, toways"EIA developmentbe aims tofocused reduce to predict ori adverseand strategic both impacts. positive issues.» Thisand (DEAT, toolnegative is designed 2004a: environmental 11) to be Depending project-specific impacts on of athe proposedand scale site-specific, of project the activity and findnot or its related impacts (nature, extent, duration, intensity and probability), the times,impactsbiological)responsible such are assessment so highlightedauthorities that not onlyandbemay done assessed. arerequire directby acknowledged a detailedimpacts impactidentified experts assessment. and In evaluated,estuarine processes but also possible (physical indirect and lt is recommended that, at all The7.3.2 disposal Licence of land-derived Authorisation wastewater Process to the for manne land-derived environment wastewater is currently governed toenvironment the marine under the sectionNational 21 Water of the Act National 36 of 1998.Water In Act, the will context be required of this for:operational policy, water useNew authorisation, applications under to dispose of land-derived wastewater to the marine environment theUpgradingclassifiedExisting marine dischargesas environmentor existing extension lawful of thatland-derivedof existingwater were usenot waste approvedin wastewater terms water of in treatmentSection terms to the of 32 the marineworks of original the or NWAenvironment industries authorisation. discharging that are not to TRAINING COURSE MANUAL page 51 These activities would typically also be subject to the EIA process. applicantsadministrativeUseTo assist Authorisation applicants with procedures the preparationProcessin the and authorisation forparties of Individual the to water beprocess, involved Applications quality the at managementDWAF different (DWAF, has stages compiled reports 2000), of the a to process.whichmanual support describes entitledAlso, the tolicence Waterassist the disposaldetailedtheapplication, types investigations.of of land-derivedthe data DWAF and information hasNote wastewater compiled that this that an tooperational theneedAide marine Mémoire.to be policy environmentincluded These provides in documents the that guidance reports are primarily provide onfor aspects pre-assessment aaddressed detailed related listing in to Final andthe of theWasteSystemsneeds proposed Disposalto andbe wastewater addressedPollution Evaluation disposalPrevention in ofthe the facility.water water Methods, management quality which management judge report the concernsapplicant'sreport. the ability details to effectively on Management manage Another important aspect that theyHuman7.3.3 result Carrying activities in increased in Capacity and anthropogenic around Analysis estuaries, pressures (CCA)particularly on the recreationalnatural environment. activities, Recreational are a major concernfacilities as determiningeconomicinternational(launching benefit sites, the visitors. carrying skiof anyzones) Although capacityparticular are sought ofrecreation estuary, many after South little atplays estuariesresearchAfrican a major estuaries. hasto accommodaterole been in directed tourism, thetowards and demand subsequently investigating by local and andthe ThereTheandtaking carrying withoutare into various accountcapacity compromising kinds seasonalof an of estuarythecarrying and capability randomcan capacities be of loosely changes,future that utilisationdefined withoutcan beas of degradation "the studied,the estuary"optimum such of (McKenzie utilisationthe as estuarinephysical, 2005).of an environmentbiological estuary, capacitythateconomic1984). every addresses andresource social (suchthe carrying use as of ancapacities, units estuary) that canwhichis optimally be all accommodated have balanced. to be considered For within example, a physicaland theaddressed physical space (Sowmanto carrying ensure laidconditionsApproval7.3.4 down for inusually thea proposed individual include development criticalpermit limitsor licence whichor activity conditions the activity may ofbe may an granted approved not exceed. under development certainCriticalCritical conditions.limits or activityare Limits typically These and for Activity/Development should beExtent measurableLandinto ofaflood use building and plainentities, Infrastructure line orfor garden example: WaterVolume Quantity andflow and Qualityrate of an effluent IndividualMarine Living catch Resources effort (bag limits) NumberandcarryingQuant types andUlcation capacity of type boats). ofofjetties (e.g.recreation number allowed NutrientduringRestriction low limits flowof direct in periods an effluentabstraction BoatLevels traffic ofExploitation (e.g. speed and type) i, TRAINING COURSE MANUAL page 52 / .Lt S1 December 2006 2LizLL'izj 7.4per development Monitoring throughMonitoringUnderpinning the design programmes successful and implementation forestuarine activities management ofor monitoringdevelopments are programmes. data are and often information, developed which independently can only be of obtained different thetheseanddepartmental Environment canprevent also duplication,overlap and reporting. legislative with monitoringTherefore, baseline requirements, monitoring initiativesto ensure despite within efficientprogrammes potential a particular use of overlapundertaken, resources, estuary in their should forboth focus example human be area.coordinated, inand the financial, State taking of Furthermore, Therefore,into account it is aspects recommended such as that monitoring for a particular sites, estuary:monitoring frequency and monitoringMonitoring parameters. initiatives be coordinated and that specific responsibilities be allocated to specific ThatThebeexecuteauthorities appointed scientificallycollected such or authority institutions. monitoringso defensible that orthe orinstitution data linksprovide and between a haveinformation strategy sufficient major to onobtain threats resources,the suchfunctioning and resources. both associated of human estuarine and impacts ecosystemsfinancial, can to be The 7.4.1CSIR wasResource commissioned Monitoring by the ProceduresWater Research for Commission Estuaries (Resource to develop Resource Directedestablished. Monitoring Measures) estuaries,monitoringprocess.procedures Theincluding programmesfor aim estuaries of baseline the forproject studiesapplicationestuaries was and to as in long-termdefine partthe Ecologicalof guidelines the monitoring Ecological Reserve and programmes procedures Reserve determination Determination(Taljaard and et implementation aI. 2003).process for for designing resource component,proceduresBecause each to (including estuarybe applied is recommendedsomewhat when a component unique spatial in itsis selected characteristics,and temporal for inclusion thescales) project in either for provides each baseline abiotic generic studies and sampling orbiotic the Abioticare:long-term components monitoring that programme need to be of addressed a particular in estuary. the Ecological Reserve Determination for estuaries WaterHydrodynamics;SedimentHydrology; Quality. dynamics; and Biotic components that need to be addressed are: Macrophytes;Microalgae; Invertebrates (including zooplankton, benthic invertebrates and macrocrustaceans); TRAINING COURSE MANUAL page 53 BirdsFish (ichthyofauna); (avifauna). and For each of the abiotic and biotic components the following is specified in the procedures:RecommendedSampling procedures; spatial scales, i.e. selection of sampling stations; and In 7.4.2the Eastern Monitoring Cape Estuaries Protocol Management (Eastern Programme,Cape Estuaries a monitoring Management protocol RecommendedisProgramme) proposed to tracktemporal scales, i.e. frequency of sampling. Thehealthlong-term protocol of South changepresents African in a keyrational estuaries physical, and (McGwynne practical chemical, procedure and biological Adams to and measure2004). socio-economic progress towards factors sustainability, that govern thea objectivesintegrity.conceptoperational we Based hierarchy goals.have on interpreted the to dominantoutline as abeing pathwayissues the that outcome threaten of maintained each of these ecological, domains, societal the protocol and institutional uses an for reaching a future desired state defined in terms of theworkshopsTo monitorSwartkops withthe and achievementscientists Tyolomnqa and of managersestuaries these goals, in and the atested Eastern suite inof Cape.co-operation indicators was with developed stakeholders through associated a series with of managementdevelopmentqualityThe indicators (3) biodiversity (10) (7)are law andpresented enforcement satisfaction(4) human in 10 ofpopulationcategories: (8) basic co-operative human growth (1) hydrodynamicneeds. (5)governance control ofand andhuman sedimentary co-management activities processes (6) planning (9) (2)effective water and thatto requirements,Managersaccommodate are bound working to timelimits differ togetherand in between their cost. resources,with, In estuaries. addition, or as partthe theEach indicators of, set co-management indicator can arebe customisedpresentedis embedded forums in to three inmeetare an thelevels interpretivemanagement target of increasing user framework groupobjectives skill and, whereThe7.4.3 definedobjective CWAC end-points of Coordinated Method signify thresholds Waterbird of Countspotential (CWAC) concern. is to monitor South Africa's waterbird wetlandsAfricanbypopulations means wetlands around of and a the programmeand the country. estuaries,conditions of regular at of regular the midsummerwetlands six-monthly which and intervals. aremidwinter important CWAC censuses for waterbirds.currently at a large monitors This number is beingover of 350 Southdone AffairsInternationalalsoThis andcontributesproject Tourism andwas baseditsinitiatedin part-fulfilmentdata at totheby the theAfrican African then of Southheadquarters Ramsar Waterbird Africa's Working ofCensus,commitment Wetlands Group a programme International ofto thethe DepartmentRamsar coordinated in Senegal. Convention. of Environmental by WetlandsCWAC TRAINING COURSE MANUAL page 54 Methods of counting are standardised for a particular site in terms of area covered and manner in December 2006 whichinformationbymisidentification. observers counters are on deployed. Countsfoot, while are This submittedothers is not are possible on done a standard between by boat form, sites,or motorcar. which for at alsosome Counters requests sites censuses aredetails provided onare weather done with sheets, which advise how to count efficiently and avoid double-counting and whichcountenteredand isthreats anddistributed into a blankcurrentlythe computer. shortlyform. having before Feedback an theimpact next on oneachcount, the seasonal wetlandtogether andcount with birds. a is computer provided This information printoutby means of isofthe thena previousnewsletter, directly The7.4.4 first NationalNational Linefish Linefish Survey Survey evaluating Method participation in, and management of, the South African A five-daylinefishery,effortlinefishery and workshop thewaswhich socio-economics a three-yearhas was an convenedestimated project of value theincompleted 2002 fishers of R at 2.2 whichininvolved. 1996.billion linefish per annum. researchers, managers and fishers lt provided invaluablelt also information highlighted on the catch, importance of the shouldthemethods,throughout National entail questionnaires South Linefishtwo yearsAfrica Survey of gave and sampling. bedatainput repeated analysis on The the survey everydesign could ¡s5 beof years.due thestandardised. to next start National in 2007 The Linefish (Mr workshop S. Lamberth, Survey, recommended so MCM, that survey pers. that lt was also decided that the next survey At lackcomm.).the thirdof estuarine Southern linefish African data Marine was Linefish highlighted Symposium as a major held gap at Arniston,in the knowledge 28 April -base. 1 May The 1999, National the personnelentiresocio-economicsLinefish coastline, Survey to monitor willincluding of thereforeestuarine exploitation all estuaries, explicitlyfisheries. of estuarine include Monthlywhile anda the minimum aerial estuarinecollection surveys, of dependent 50of dataestuariesfor the on two-year fishcatch, will and be effort, invertebrate period,surveyed participation will by coverspecies. ground andthe needsfishers.These7.5 topersonnel The be decidedestuaries will on also to a beregional be surveyed responsible basis. include for interviewingthe top 50 on recreational, the priority list-commercial but theEvaluation final and selection subsistence still theStrategic7.5.1 potential assessment trajectory andof change evaluation associated is required with humanto establish interference. long-term State natural of the variability,State Environment of theas well Environment(S0E) as Reporting fromSoEofReporting the reporting allCoast available is Reportingan consists example sources, ofbe ofcompiling done a andstrategic regularly analysing information type on ofboth this assessment. on provincialto environmental discover andThe whether nationalCoastal and sustainable conditionslevelsZone Bill(Section developmentproposes are 138). improving that issues State or TRAINING COURSE MANUAL page 55 - :R.O AM:M IDecemberanddeteriorating. well-being. If the environment 2006 is deteriorating, action needs to be taken to protect society's health SoE reporting provides a mechanism through which resource management and environmental issues SoEcan becan analysed be done and at different reported levels, using, for for example: example, a DPSIR approach. National; e SectoralLocalMetropolitan;Provincial; (local (catchments, municipal area);rivers orand estuaries).

TRAINING COURSE MANUAL page 56 8 REFERENCES December 2006 Costanza,Cameron, WM R, D'Arge, & Pritchard, R, De DW Groot, 1963. R, 'Estuaries', Farber, S, In Grasso, Hill, MN M, (ed.) Hannon, The Sea, B, Limburg,VoI.York: 2, pp John K,306-324. Naeem, Wiley New & S, Sons. CSIR 1996. Strategic Environmental Assessment (SEA). A PRIMER. CSIR Reportworld'sO'Neill, ENV/S-RR ecosystem RV, Paruelo, 96001. services J, Raskin, and natural RG, capital. Sutton, Nature P and 387:253-259. Van Den Belt, M 1997. The value of the Department of Water Affairs and Forestry (DWAF) 2000. Water use authorisationindividual[Available process applications.Online: forhttp://fred.csir.co.zalwww/sea/primer/primerc.html Edition 1: Final Draft for implementation and use. Revision 3. Pretoria. Hay, D 2005. Proceedings of Strategic Adaptive Management (SAM) Workshop,2005. Mtentu,ISBN 0-620-26602-3 16 17 May (http://www-dwaf.pwv.qov.za/Documents/) Mander,Lamberth, M 2001.SJ and The Turpie, value JKof estuaries. 2003. The In role Breen, of estuariesCM & McKenzie, in South M African(eds.) Managing fisheries:importance estuaries economic and management in implications. WRC Report No. 756/2/03. Mander, M, Turpie, JK and Lamberth, SJ 2001. Decision support in estuary management:economics.South Africa: A Pretoria: roleAn introduction, for Water Research pp 2 - 9. Commission. Pietermaritzburg: Institute of Natural Resources. Marneweck, GC, Batchelor, AL and Uys, AC 2004. Protocols Contributing to theResearchIl,Estuaries Report Management CommissioninF, South Guidelines of Africa, Report for with Estuarine no a ParticularTT 23 7/04.Rehabilitation, Emphasis on Water the Eastern Research Cape Commission Province, Volume Water McGwynne, L and Mckenzie, M 2006. Objective 1: Profiling estuaries in IDP planning.researchersdevelopmentprocedures Policies for andplanning incorporatingand authorities and related at information local, processes district and areand knowledge established provincial on levels.through estuaries Draft. collaboration into Water the integratedResearch between McGwynne, L and Adams, JB 2004. Protocols Contributing to the ManagementAfrica, ofMonitoringCommission. Estuaries with a inProtocolParticular South for Emphasis South African on the Estuaries, Eastern CapeWater Province Research Volume Commission II, Report no lT Report E, A McKenzie, M 2005. Estuary Management Instruments. A report to Centre forDevelopment,23 Environment 7/04. University and of KwaZulu-Natal. TRAINING COURSE MANUAL page 57 Pritchard, DW 1967. What is an estuary: physical viewpoint. In Lauff, GH (ed.) Estuaries pp 3-5. December 2006 VU4'11 Rogers, Washingtonmanagement DC: of theK, American rivers of Association the Kruger forNational the Advancement Park. Biggs,Freshwater ofH Science.1999. Biology, 41, 439-451. Integrating indicators, endpoints and value systems in strategic Sihiophe, N 2004. Protocols Contributing to the Management of Estuaries in SouthResearchforParticular Co-operative Africa, Commission Emphasis with Management a Reporton the noEastern of TTthe 237/04. Use Cape of Estuaries.Province, VolumeWater Research II, Report Commission. B, A Generic Water System Sihlophe, N 2006. Enhancing the protocoleconomicdevelopment. for benefits incorporating In: Turpie, of estuaries JK, and Sihiope, through enhancing N, integrated Carter, estuary A planningand values Hosking and in Splanningmanagement: 2006. Maximising and management,a rationale the socio- and value of estuaries through biodiversity-based enterprise Smith, N and Cullinan, C 2000. Review of South African Environmental Laws RegulatingMayBoyd,Eastern 2000, AJ, Cape Estuaries.Barwell, Port Estuaries Elizabeth, L In& Taljaard,Management South S Africa.(eds.) Programme: Report on No.Phase the 2, National MarineIl. Water and EstuariesResearch Coastal Workshop.Commission. Management 3 - 5 Sowman, MR 1984. An assessment of recreational carrying capacity at Infanta, SouthMasters.Implantation Cape. LIB-P, ThesisWorkshops. PO4100; - ECRUCape Town: - CSW Chief 22 Directorate Marine and Coastal Management. Taljaard, S, Van Niekerk, L, Huizinga, P and Joubert, W 2003. Resource MonitoringProcess.Estuaries. Procedures Water Research for Commission Report no 1308/1/03. For application in the Ecological Reserve Determination and Implementation Pretoria. Turpie, JK 2004. Protocols Contributing to the Management of Estuaries in SouthandEstuaries,Particular Guidelines Africa, Emphasistheir with Protectionfor aa onStrategy the and Eastern Threatsfor the Cape Protection to their Province, Biodiversity, of Estuarine Volume Proposed II,Biodiversity. Report Goals D. Current Waterfor Conservation Research Status of Turpie, JK, Sihiope, N, Carter, A and Hosking, S 2006. Maximising the socio-economicincorporatingestuariesCommission benefits through Report and ofenhancing nointegrated TT 237/04. estuary planning values and inmanagement: planning and amanagement, rationale and Eastern protocol Cape for UNEP/MAP/PAP 1999. Conceptual framework and planning guidelines for IntegratedandEstuaries River Coastal ManagementBasin AreaManagement. Programme: Split, PriorityPhase II.Action Water Programme. Research Commission. United Nations Environmental Van Niekerk, L and Taljaard, S 2003. Recommendations on a framework for effectivegovernanceProgramme, cooperative ofMediterranean South African Action estuaries. Plan, CSIR Priority REPORT Actions ENV-S-C Programme. 2003-077. TRAINING COURSE MANUAL page 58 Van Niekerk, L and Taljaard, S 2004. Protocols Contributing to the Management ofAfrica, EstuariesEstuaries.Recommendations with in aWater South Particular Research on aEmphasis Framework Commission on for the ReportEffective Eastern no Co-operative 7T Cape 237/04. Province, Governance Volume of Il, South Report African A, Wood, A, Cowley, P and Paterson, A 2004. Protocols Contributing to the ManagementSustainableASouth Classification ofAfrica, Estuaries use with ofSystem a intheir Particular Living for Eastern EmphasisResources. Cape on Water theEstuaries, Eastern Research with Cape Commission Management Province, ReportVolume Guidelines no Il, lTReport 237/04. for theC,

TRAINING COURSE MANUAL page 59 ANNEXURE A: USEFUL ENVIRONMENTAL DATA AND INFORMATION SOURCES estuarinefunctioningmonitoringThere is an datasets ofsystem).urgent estuaries need held The and/or forby current variousa good the lack consequences informationinstitutions, of information base consultants of badto leads support management to and the individuals management practices. around Thereof estuaries the are country. many (i.e. little, or no, understanding of the AlthoughTheestuarine following most management. cover datasets short are time noteworthy: periods or specific studies only, they provide valuable information for (CWAC))UGTCSIR PercyEstuarine FitzPatrick Data-Base Institute (Water of qualityAfrican and Ornithology, bathymetric UVU data) (Coordinated Waterbird Counts The following literature is recommended for estuarine managers: ImportanceNelson Mandela Rating) Metropolitan University (UPE), Botany and Zoology Departments (Botanical Allanson,MayBoyd,University 2000, AJ, BR Press.Barwell, Port& Baird, Elizabeth,(Available L &D Taljaard,(eds) atSouth most1999. S Africa.2000.academic Estuaries ReportReport libraries) of on No.South the 2, National MarineAfrica. andCambridge:Estuaries Coastal Workshop. ManagementCambridge 3 - 5 InstituteBreen,Management:Implementation CM, of Natural and Cape Mckenzie, Resources, Town). M, Pietermaritzburg. 2001. Managing estuaries in South Africa: An Introduction. Workshops. (Available from Chief Directorate Marine and Coastal ResearchEstuariesmostDay, JHacademic (ed) Reports.of the1981. libraries) Cape. Stellenbosch.Estuarine Part Il Ecology.Synopses (So called AA of Balkema, availableGreen Reports, Capeinformation Town. available on(Out individual from of print, CSIR). systems.but available CSIR at Taljaard,Commission,Estuaries:Hay, D, Huizinga, S, A Van Pretoria.Guide. Niekerk, P and WRC Mitchell,L, ReportHuizinga, S no2005. P TI & 241/04.Joubert,Managing ISBNW Sedimentary2003. 1-77005-272-0. Resource Process Monitoring Water in South ProceduresResearch African forsystems.Whiffield,Process. Estuaries. Water WaterAK For 1995. Researchapplication Research Available Commission inCommission the scientific Ecological Report information Reserve no 1308/1/03. on Determination individual South and ImplementationAfrican Estuarine Report. WRC Report no 577/1/95. Pretoria. (Contact: NMBlchthyologicalWhiffield,http://www.wrc.org.za/) Printers AK (Contact Monographs 1998. SAIABBiology of atthe http://www.ilbsmith.ru.ac.za/).and J.LB. Ecology Smith Institute of Fishes of Ichthyology, No. 2. Port Elizabeth: in Southern African Estuaries. TRAINING COURSE MANUAL page 60 Y BUILDIDecember 2006 As local estuarine management requires hands-on involvement inANNEXURE the day-to-day activities B: IMPORTANT that impact INFRASTRUCTIJRAL NEEDS on estuanne health, the following infrastructure and resources are needed: Skiboat/rubberduckVehicle with towbar with outboard engine PersonalAll-weatherFuelQualified for vehicle skippercomputer gear and (e.g.and/or boat oilskins, crew wetsuit) CellularReferenceDigitalInternet phone camera access books (ensure (to record safety evidence and security or interesting on water) phenomena) estuarineandmanagementIn addition, collect work evidence it alsois is strongly often do ina conductedlawthe recommended correctenforcement during manner. coursebadthat The weatherthe (e.g.ability staff MCM), conditions. membersto swim in orderis ofalso the to seen enforce lead as agent anthe important relevantfor local legislation aspect,estuarine as skipperrecommendedIn regions and boat). where that locallimited residents funding beprevents approached the acquisition of the above-mentioned resources, it for providing assistance where possible (e.g. is

TRAINING COURSE MANUAL page 61