~ ~-eS,~,I(f UNIVERSITY OF THE WESTERN CAPE UNIVERSITEIT VAN WES-KAAPLAND This book must be returned on or before the last date shown below. Hierdie boek moet terugbesorg word voor of op die laaste datum hieronder aangegee. NB: Telephonic renewals only between 19h30-22hOO -\,-" at issue desk 9592946 1 0 FEB Z 05 ( 11 ~ , 30001600018288 https://etd.uwc.ac.za/ The New Fishing Quota System For The Small Scale, Traditional Fishers at Hawston: Problems and Prospects July 2001 By Josseffe Maffhee I A dissertation submitted to the School of Government, University of the Western Cape in partial fulfilment of the degree of Masters of Public Administration https://etd.uwc.ac.za/ , i I UMNIJ'IITEIT VAN wat· AAAPLAIe 8l8L1OTEEK ~ ~3· C\ s\o l\I\~ U9AAA' UNiVERIITV OF THt ,..anE .... CAPE https://etd.uwc.ac.za/ TABLE OF CONTENTS Topic Page Number Table of Contents a-b Acknowledgements c Abstract d-e CHAPTER 1 INTRODUCTION Nature and Scope of the Study 1 1.1 Statement of the problem 1-3 1.2 Hypothesis 3 1.3 Aim of the study 4 1.4 Research Methodology 4-6 1.5 Sampling 6 '1.6 Assumptions 7-9 1.7 Limitation of the research 9-10 1.8 Importance of the research 10 1.9 Organization of the Study 11 CHAPTER2 , 2.1 Historical background of fishing in Greater Hermanus .... "'1Ij ~ • ... and Hawston. 12-14 2.2 The geographic location of Greater Hermanus 14-16 2.3 The geographic location and conditions of Hawston 16-17 2.3.1 The commercial abalone divers 17-19 2.3.2 The boat assistants 19-20 2.3.3 The Hawston Fishing Community Organization 20-21 2.4 Poaching and it's effects 21-22 -, 2.4.1 The Poachers 22-23 b https://etd.uwc.ac.za/ CHAPTER 3 3.1 Information on the old system: fishing legislation and access rights. 24-25 3.2 The Acts and government bodies that plays an important role on South African fisheries 25-29 CHAPTER4 4.1 The new system: Hawston and the legislative/political arena 30-33 4.2 Facts of mismanagement in Departmental Affairs bedevilling the quota system 33-35 CHAPTER 5 Problems confronting small-scale fishers in Hawston "5.1 The Overberg Commercial Divers Association (OVCDA) 36-41 5.2 Hawston Fishing Company 41-46 5.3 Southern Boat Assistant Company 46-49 5.4 Synopsis of the main research results 50-52 CHAPTER6 6.1 Findings 53-62 6.2 Conclusions 63-64 6.3 Recommendations 64-70 BIBLIOGRAPHY 71-72 ~.. c https://etd.uwc.ac.za/ ACKNOWLEDGEMENTS The researcher extends much appreciation and thanks to the following persons of the Hawston fishing community, without whose active participation and considerable time, this research study would not have been possible: Mr. Jerome Firgaji, Mr. Ferdi Henn, Mr. Philipus May, and Mr. Roy Swart. For providing vital information and a historical background on Hawston and its people, the author would like to thank Mr Aldrich Gillion and wife. Sincere thanks also to Samantha Damon for her exceptional typing skills, the staff of the School of Government at the University of the Western Cape for their support in enabling research into a critical area of marine resources management. To my husband, thank you for your love, understanding, patience and motivation that allowed me to complete my research. To "haam Groenewald, for you're unconditional availability, love and support. Finally, to Professor Chisepo Mphaisha for the patience he displayed during supervision of this mini-thesis d https://etd.uwc.ac.za/ ABSTRACT Hawston, a small fishing town situated in Greater Hermanus is famous for its lucrative abalone resource. Since the drastic reduction of the abalone quota, which was implemented from 1994-2001, black commercial abalone divers have been on the receiving end of the new fishing legislation. The decimation of abalone by illegal harvesters, and the annual allocation of one and a half ton of abalone to all black commercial divers at present, are serious factors that influence the future of the commercial abalone divers and their counterparts. An abalone quota plays a pivotal role regarding the existence of various groups of people namely the Southern boat assistants, Overberg commercial abalone divers, Hawston fishing community etc. This study attempts to examine the effects of the drastic reduction of the abalone quota on the commercial divers (from 22-ton to one and a half ton), the boat assistants and the Hawston fishing community. The mentioned groups are also engaged in harvesting their allocated crayfish quotas, the research project mainly focuses on the effect of the new quota system on the allocation of abalone and crayfish quotas in Hawston. In essence, this research project seeks to examine the validity or invalidity of the White Paper regarding policies of the new Living Resources Act on commercial abalone divers, the boat assistants and the Hawston fishing community. The researcher has noted the various shortcomings in the White Paper on Marine Resources and the associated indiscrepancies being practiced by the Department of Environmental Affairs. In the study, a qualitative method is used to assess the impact of the implementation of new fishing quotas on various social groups in Hawston (existing and new groups). This was done by means of in-depth interviews. Some of the policy makers at the Department of Environmental Affairs were also interviewed. An evaluation of data gathered through the use of interviews and review of primary and secondary literature, revealed that equitable fishing quota allocation systems are not addressing the needs of the small-scale fishers in Hawston. e https://etd.uwc.ac.za/ By means of reports, it was concluded that various factors are infringing on the rights of those excluded from receiving allocation systems and also has the effect of fuelling uncertainty for the future of commercial abalone divers and small scale fishers in Hawston. The primary objective of this study is to investigate if the White Paper Policy on Marine Resources is benefiting the disadvantaged small-scale fishers in Hawston. Most important for the commercial abalone diver in Hawston, is the effect of the decimation of abalone and how legislation in the new quota system will influence their lives. f https://etd.uwc.ac.za/ CHAPTER 1 INTRODUCTION Nature and Scope of the Study This study focuses on the questions of equal and adequate access to fishing rights by the fishing community of Hawston. 1.1 Statement of the problem: As a result of colonialism and apartheid, the fishing industry in South Africa still displays evidence of being structurally and socially unequal. White business dominated the industry years ago and still dominating it at all levels today. Given the high levels of inequality within the industry, there is broad agreement that the industry should be restructured, giving priority to job creation and equitable resource distribution. Within the birth of a new democratic South Africa, the Department of Environmental Affairs and Tourism set up the Fisheries Transformation Council (FTC) to facilitate the process of allocation of fishing rights particularly with respect to assisting historically disadvantaged small and medium sized fishing groups. To date, the implementation of the new allocation policy has not been entirely successful, especially since many small-scale fishers have remained in poverty and have received no significant financial or other benefits from the new system. The White Paper aims to, amongst other, remove the quota decisions from the political arena, due to the perception that Ministers have, in the past, distributed quotas to followers and friends. It is also argued that the 1997 White Paper is "very vague in places where it should be specific", referring to the whole question of the redistribution of fishing rights. It is said that the policy seems to go out of its way to placate big fishing companies. Besides some of the given reasons, vari?us other reasons include: corruption within the community fishing groups and the system of allocation, lack of capacity to access the system, -1ackof capacity to manage a quota effectively, corruption in the awarding of "paper" quotas, etc. https://etd.uwc.ac.za/ 2 According to Horst Kleinschmidt, Deputy Director General at the Department of Marine and Coastal Management, "hoodwinking" ranges from small-scale subsistence fishermen to many big name fishing companies and this is a serious threat to an already exploited marine resource. At present the attitude of free-for-all, with too many applicants for far too few fish, kelp, abalone, crayfish and deep-sea fish, makes it extremely difficult to allocate quotas in an equitable fashion. According to the Minister of Marine and Coastal Management, Minister Valli Moosa, another aspect that leads to exploitation, is the paper quota. He says that: "a paper quota is one which - is sold by a person with rights to catch certain fish or shell fish to somebody else, who does the catching." Some quota-holders of abalone, crayfish and rock lobsters have sold their quotas to the highest bidders. There is also a strong belief that the New Living_Marine Resources Act contains----- loopholes that have been taken up by poachers and illegal paper quota holders to exploit the fla~_i_r:t_t~eAct. --------- ---~-_.--- -- --------~~-,-. In four years, quota applications have increased from 500 to more than 12 000 in 2001, which ~----- -------------- - --- ---_. --- has led to a permanent state...__'_--- of _<::rl~l~j_IJ-th~-M_~riQ~_!ndustry.Theproblem-----=. - is --_.....-._- how to deal with _._---- .'~-- -- _'._--. this huge number of claims to fishirlg ri_ghts}__withoutf~_tallyendangering the.specles, The researcher envisages finding some clear solutions from this chaos; inefficiency and snarling mess of conflicting interests that currently bedevils the fishing industry.