View metadata, citation and similar papers at core.ac.uk brought toSouth you by MPAsAfricaCORE provided by Aquatic Commons SAMUDRA Monograph Marine Protected Areas and Small-scale Fisheries in South Africa: Promoting Governance, Participation, Equity and Benefi t Sharing Jackie Sunde International Collective in Support of Fishworkers www.icsf.net About the Author Jackie Sunde, a Member of ICSF, is an independent researcher based in Cape Town, South Africa. She is currently completing a doctorate on customary systems of marine resource use and governance at the University of Cape Town. She can be reached at [email protected] SAMUDRA Monograph Marine Protected Areas and Small-scale Fisheries in South Africa: Promoting Governance, Participation, Equity and Benefi t Sharing Jackie Sunde International Collective in Support of Fishworkers www.icsf.net SAMUDRA Monograph Marine Protected Areas and Small-scale Fisheries in South Africa: Promoting Governance, Participation, Equity and Benefi t Sharing Written by Jackie Sunde September 2014 Edited by KG Kumar and Sumana Narayanan Layout by P Sivasakthivel Cover Women inter-tidal harvesters, Dwesa-Cwebe MPA, South Africa Photo by Jackie Sunde Printed at L.S. Graphic Prints, Chennai Published by International Collective in Support of Fishworkers 27 College Road, Chennai 600 006, India Tel: +91 44 2827 5303 Fax: +91 44 2825 4457 Email: [email protected] www.icsf.net Copyright © ICSF 2014 ISBN 978 93 80802 30 5 While ICSF reserves all rights for this publication, any portion of it may be freely copied and distributed, provided appropriate credit is given. Any commercial use of this material is prohibited without prior permission. ICSF would appreciate receiving a copy of any publication that uses this publication as a source. The opinions and positions expressed in this publication are those of the authors concerned and do not necessarily represent the offi cial views of ICSF. Contents Acronyms and Abbreviations .................................................................................... vii Acknowledgements ...................................................................................................... ix Executive Summary ..................................................................................................... xi Section 1: The governance, legislative and policy framework of MPAs in South Africa .............................................................................. 1 1.1 Introduction ...................................................................................................... 1 1.2 Purpose of this research ................................................................................. 10 1.3 Methodology .................................................................................................... 11 1.4 Background and history of MPAs and small-scale fi sheries in South Africa .................................................................................. 16 1.5 Governance of MPAs post-apartheid: legal and policy environment ..... 25 1.6 The current institutional arrangements and management of MPAs ........ 31 1.7 Delegated authority and management .......................................................... 34 1.8 International and regional commitments to marine biodiversity protection and fi sheries management ........................................................... 35 1.9 Current status of MPAs in South Africa ....................................................... 36 1.10 Current state of information on marine and coastal biodiversity, marine spatial planning and the identifi cation of EBSAs ........................... 37 1.11 Existing marine spatial management and planning related to PAs and EBSAs ......................................................................................................... 48 Section 2: Assessing implementation of CBD PoWPA Programme Element Two in MPAs in South Africa from the perspective of small-scale fi sheries............................................................................................................. 51 2.1 Governance and participation ....................................................................... 51 2.2 Assessing equity and benefi t sharing ............................................................. 54 2.3 MPA management authorities’ policy and practice on governance, participation, equity and benefi t sharing—the view from ‘on the water’ 55 2.4 Assessment of governance, participation, equity and benefi t sharing at management authority level ............................................................................ 64 2.5 Training and capacity development on MPA governance, participation, equity and benefi t sharing ............................................................................... 76 Section 3: Trapped: Small-scale fi shing communities and MPAs in South Africa-case studies from the coast .......................................... 78 3.1 Kosi bay customary trap fi shery in Maputaland MPA ............................... 78 3.2 The Dwesa-Cwebe MPA, Eastern Cape ........................................................ 84 3.3 The traditional net fi shing community of Langebaan lagoon MPA ......... 90 Section 4: Discussion, conclusions and recommendations.................................. 98 4.1 Challenges.......................................................................................................... 98 4.2 Recommendations ............................................................................................ 105 References ...................................................................................................................... 108 Appendix : List of persons interviewed for the research ....................................... 118 List of Tables and Figures Table 1: Cross-cutting principles inherent in international guidelines within which fi sheries management and conservation measures that use MPAs or other area-based measures are located ..................................................... 6 Table 2: Goals and indicative tasks of relevance to Programme Element Two in relation to MPAs and small-scale fi shing communities in South Africa .................................................................................................. 12 Table 3: MPAs in South Africa indicating management agency, communities impacted, date of establishment, legal framework and related impact on small-scale fi shing communities .................................................................... 38 Figure 1: Small-scale fi shing communities along the South African coastline ........ 21 Figure 2: Map of MPAs in South Africa ........................................................................ 36 SAMUDRA Monograph Acronyms and Abbreviations CBD Convention on Biological Diversity CEDAW Convention on the Elimination of All Forms of Discrimination Against Women CFS Committee on Food Security (of FAO) CMC Co-Management Committee CMRU Community Marine Resource User COFI Committee on Fisheries (of FAO) COP Conference of the Parties CPA Communal Property Association CPP community-public partnership DAFF Department of Agriculture, Forestry and Fisheries DEAT Department of Environmental Affairs and Tourism DEA Department of Environmental Affairs DLA Department of Land Affairs DPME Department of Performance Monitoring and Evaluation EAF ecosystem approach to fi sheries EBSA Ecologically and Biologically Signifi cant Area ECPTA Eastern Cape Parks and Tourism Agency EEU Environmental Evaluation Unit EEZ exclusive economic zone EKZN Ezemvelo KwaZulu-Natal Wildlife EPWP Expanded Public Works Programme FAO Food and Agriculture Organization of the United Nations FIP Fisheries Improvement Project (of WWF) GSLWA Greater St Lucia Wetlands Authority ICMA Integrated Coastal Management Act of 2009 ICSF International Collective in Support of Fishworkers IUCN International Union for the Conservation of Nature LRC Legal Resources Centre vii MPAS IN SOUTH AFRICA SAMUDRA Monograph MCM Marine and Coastal Management METT Management Effectiveness Tracking Tool MLRA Marine Living Resources Act MoU memorandum of understanding MPA marine protected area NEMA National Environmental Management Act NEMPAA National Environmental Management: Protected Areas Act of 2003 NGO non-governmental organization OBI Offshore Biodiversity Initiative PA protected area PF Park Forum PMR Park Management Review PoWPA Programme of Work on Protected Areas (of the CBD) SANBI South African National Biodiversity Institute SANParks South African National Parks SAPA Social Assessment of Protected Areas SFMU Small-scale Fisheries Management Unit (of EKZN) SFTG Subsistence Fisheries Task Group SSF small-scale fi sheries SSF Voluntary Guidelines for Securing Sustainable Small-scale Fisheries Guidelines in the Context of Food Security and Poverty Eradication SSFU Small-Scale Fisheries Unit (of EKZN Wildlife) Tenure Voluntary Guidelines on the Responsible Governance of Tenure of Guidelines Land, Fisheries and Forests in the Context of National Food Security UN United Nations UNDRIP United Nations Declaration on the Rights of Indigenous Peoples UNESCO United Nations Educational, Scientifi c and Cultural Organisation WCNP West Coastal National Park WHA World Heritage Authority WIOMSA West Indian Ocean Marine Science Association WSSD World Summit on Sustainable Development MPAS IN SOUTH AFRICA viii SAMUDRA Monograph ACKNOWLEDGEMENTS would like to thank all the offi cials from the Department of Environmental Affairs (DEA) and from the