Rethinking South Africa's small-scale fisheries management paradigm and governance approach : evidence from the Eastern Cape

Abstract

This thesis presents a first analysis of how the South African fisheries authority (MCM) has utilised its fisheries management toolbox and governance framework in response to the emerging biological, economic and social challenges of post-apartheid fisheries in the Eastern Cape Province. Despite recognition of the socio-economic circumstances of traditional subsistence fishers in the region, the national fisheries management authority implemented a 'target resource orientated' management approach similar to that used for South Africa's rights-based commercial fisheries. Anecdotal evidence of entrenched illegal fishing for abalone, spiny lobster, and species targeted by subsistence fishers however suggested that MCM's management approach was encountering serious problems, as the needs and circumstances of inshore fishers and fishing communities were not adequately being understood and addressed. A review of fisheries management literature therefore shaped the hypothesis that an underlying governance problem was responsible for the symptoms of management failure being observed. In this regard, management is seen as more concerned with the technical and regulatory measures of the day-to-day operations of regulated fisheries, while fisheries governance needs to take account of "the sum of legal, social, economic and political arrangements used to manage fisheries ... ". Thus, governance includes policy making and management decision-making, with simultaneous recognition of issues outside of the fisheries sector. It thus appeared that the underlying problem was rather one of broader fisheries governance and inappropriate governance objectives with consequent inappropriate resource management arrangements. This thesis set out to gather evidence to test this hypothesis.