Final Implementation Plan

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DEPARTMENT OF AGRICULTURE, FORESTRY AND FISHERIES

IMPLEMENTATION PLAN FOR THE SMALL-SCALE FISHERIES POLICY

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Contents FOREWORD .............................................................................................. Error! Bookmark not defined.

EXECUTIVE SUMMARY ............................................................................. Error! Bookmark not defined.

1. INTRODUCTION ............................................................................................................................... 5

1.1 Background information ............................................................................................................ 5

1.2 Purpose of the Implementation Plan ...................................................................................... 5

1.3 Overview of approach and methodology used to develop the plan ................................... 6

1.4 Structure of the plan .................................................................................................................. 7

2. BACKGROUND CONTEXT ................................................................................................................. 9

3. VISION AND POLICY OBJECTIVES................................................................................................... 11

4. POLICY SCOPE AND DELIVERABLES ............................................................................................... 13

4.1 Developmental & transformation objectives ................................................................... 13

Capacity building and skills training ............................................................................................. 13

Technical and advisory support services ....................................................................................... 13

5. GOVERNANCE, CO-MANAGEMENT AND INSTITUTIONAL RESPONSIBILITY FOR IMPLEMENTATION 13

5.1 Governance model and mechanisms for management of small-scale fisheries .............. 14

Co-management model ................................................................................................................ 14

Departmental Co-management Committee ................................................................................. 15

Regional Co-management Committees ........................................................................................ 15

Local Co-management Committees .............................................................................................. 16

5.2 Roles and responsibilities of organs of state .................................................................... 20

5.3 Institutional arrangements ............................................................................................... 20

5.4 Compliance monitoring and enforcement ........................................................................ 22

5.5 Overview of existing capacity ........................................................................................... 22

6. RIGHT HOLDING AND ALLOCATION OF SMALL-SCALE FISHING RIGHTS ....................................... 25

6.1 Community-based right holding ....................................................................................... 25

6.2 Allocation of small-scale fishing rights .............................................................................. 25

6.3 Basket of species (multi-species approach) ...................................................................... 25

6.4 Conflict resolution mechanisms ........................................................................................ 26

7. EXTERNAL STAKEHOLDERS AND STAKEHOLDER ENGAGEMENT................................................... 28

8. IMPLEMENTATION ROADMAP ...................................................................................................... 30

9. RISK ANALYSIS ........................................................................................................................... 31

10. COSTING ASSUMPTIONS AND METHODOLOGY........................................................................ 32

11. RESOURCES REQUIRED FOR IMPLEMENTATION ....................................................................... 35

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12. REVIEW, MONITORING AND EVALUATION ............................................................................... 46

13. FINANCIAL IMPLICATIONS SUMMARY ...................................................................................... 46

14. OVERVIEW OF CRITICAL SUCCESS FACTORS AND RETURN ON INVESTMENT .......................... 49

15. ACTIVITY BREAKDOWN SCHEDULE ........................................................................................... 50

15.1 Value addition and development ......................................................................................... 51

15.2 Manage Small-Scale Fisheries Rights Application and Allocation process ........................... 52

15.3 Research and scientific advice .............................................................................................. 57

15.4 Compliance monitoring, surveillance & enforcement .......................................................... 58

15. 5 Resource management and co-management ................................................................... 58

15.6 Institutional arrangements ................................................................................................... 60

15.7 Capacity building and technical extension support to SSFCs ................................................ 62

15.8 Social security & disaster relief ............................................................................................. 64

15.9 Safety at sea & labour rights ................................................................................................. 64

15.10 Monitoring & evaluating policy implementation .............................................................. 65

REFERENCES ............................................................................................. Error! Bookmark not defined.

APPENDICES .......................................................................................................................................... 66

Breakdown of financial implications (summary cost) ........................................................................... 66

Human resources requirements and skills development strategy for implementing the SSFP ..... Error! Bookmark not defined.

Consolidated advisory memorandum ...................................................... Error! Bookmark not defined.

Report on the Application and Allocation Management Process ............ Error! Bookmark not defined.

Report on Institutional Arrangements and Structures for Co-operative GovernanceError! Bookmark not defined.

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LIST OF ACRONYMS BCEA Basic Conditions of Employment Act, 75 of 1997 CAF Consultative Advisory Forum CBLE Community Based Legal Entities CBO Community Based Organisations CDWs Community Development Workers CIPRO Companies and Intellectual Property Regulatory Office COIDA Compensation for Occupational Injuries and Diseases Act, 130 of 1993 Constitution Constitution of the Republic of South Africa, 108 of 1996 CRDP Comprehensive Rural Development Programme DAFF Department of Agriculture, Forestry and Fisheries DG Director-General (of the Department of Agriculture Forestry and Fisheries) DHET Department of Higher Education and Training DOL Department of Labour DOT National Department of Transport DPSA Department of Public Service Administration DTI Department of Trade and Industry EAF Ecosystem approach to Fisheries Management EEA Employment Equity Act EEU University of Cape Town’s Environmental Evaluation Unit EPWP Expanded Public Works Programmes FAO Food and Agricultural Organisation of the United Nations EKZNW Ezemvelo KwaZulu-Natal Wildlife HR Human Resource HRD Human Resource Development ICMA National Environmental Management: Integrated Coastal Management Act, 24 of 2008 IDC Industrial Development Corporation IDPs Integrated Development Plans IDZ Integrated Development Zone IFDP Integrated Fisheries Development Plan and Programme of Action LED Local economic development LRC Legal Resources Centre MLR Marine Living Resources MLRA Marine Living Resources Act, 18 of 1998 NRCS National Regulator for Compulsory Specifications NEMA National Environmental Management Act, 107 of 1998 NGO Non-governmental Organisation PAJA Promotion of Administrative Justice Act, 3 of 2000 SSFC Small Scale Fishing Community SSFP Small-Scale Fisheries Sector Policy TAC Total Allowable Catch TAE Total Applied Effort The Policy Small-Scale Fisheries Sector Policy ToR Terms of Reference

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1. INTRODUCTION

1.1 Background information

The definition of subsistence fishing in the Marine Living Resources Act (MLRA) restricts this category

to those who fish for local consumption with very limited local sale, thereby excluding other small-

scale and artisanal fishers who catch and sell in order to sustain their livelihoods, albeit on a small-

scale. It is further confined to harvesting and therefore tends to exclude those who are directly

involved in pre and post harvesting. This definition has been a key limitation in fully transforming the

fisheries sector post 1994 and has had particular implications for women in those regions where

they are not directly involved in harvesting but may be involved in bait preparation, cleaning,

processing and marketing of the catch. The implications of this definition for small-scale fishers were

identified and in 2007, the National Summit on Small-scale Fisheries elected and mandated a

National Task Team (the NTT) with representatives from fishing communities in all four coastal

provinces to oversee the process of developing policy to address the inequalities in the current

dispensation with regard to the small-scale fisheries sector.

1.2 Purpose of the Implementation Plan

The purpose of this Implementation Plan is to guide and direct the implementation of the Small-

scale Fisheries Sector Policy (SSFP) by identifying what must be done, how, by whom, when and with

what resources. The plan provides a high level “road map” of how implementation will proceed, is

focussed at the strategic level and identifies the key priorities and success factors for

implementation, as opposed to providing operational guidance. In other words this is not a day-to-

day operational implementation plan or template for the Annul Performance Plans that each of the

Programmes assigned with responsibility for implementing the SSFP will have to prepare.

The Implementation Plan identifies the main phases of implementation, priorities for action, who

will be responsible for these actions, and identifies the main cost drivers and financial implications of

implementation. It provides a road map for implementing the developmental policy goals that are

aimed at addressing the need for transformation, social equity and justice; and the new paradigm

INCLUDED IN THIS SECTION

Background information

Purpose of the plan and what it seeks to do

Overview of the process and methodology used to develop the plan

Structure of the plan (how to read & use it)

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for managing small-scale fisheries through co-management and communal right holding. The main

elements of the road map are:

Value addition and development

Managing the small-scale fisheries rights application and allocation process

Research and scientific advice

Compliance monitoring, surveillance and enforcement

Institutional arrangements

Capacity building, extension and technical support for small-scale fishing communities

Social security and disaster relief

Safety at sea and labour rights

Monitoring and evaluating policy implementation

1.3 Overview of approach and methodology used to develop the plan

The approach used to develop the Implementation Plan was to work in close cooperation with the

Directorate: Small-scale Fisheries (D:SSF) in the Branch Fisheries Management to ensure buy-in and

compliance with the requirements stipulated in the project brief. In addition, this approach was

adopted to facilitate knowledge transfer from the service provider to the client and build client

capacity on costing and implementation plan development.

The methodology adopted was based on a desktop review of best practice in developing

implementation plans and addressing the implementation challenges facing AIS regulation and

management. The information gathered in each of these activities and steps has been captured in

the relevant sections of the Implementation Plan.

The major activities and steps followed in developing the Implementation Plan were to identify:

• WHAT are the things that need to be done to implement the SSFP and ensure compliance with what is being regulated;

• HOW to proceed with implementation and how the things need to be done must be implemented;

• WHEN activities should implemented – both in terms of time frames and prioritisation; • WHO the responsible implementing agent is; and • WHAT RESOURCES are required for implementation - available (existing) and additional (new)

resources.

The figure below provides a diagrammatic representation of the five major activities and steps

undertaken in the process of developing the Implementation Plan.

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Figure 1 Methodology used in developing the Implementation Plan

1.4 Structure of the plan

The Implementation Plan is organised into the following sections:

Background context which outlines briefly why there is a policy for the small-scale fisheries

sector;

Vision and policy objectives which provides a high level overview of the policy framework

within which implementation must take place, clarifies DEA’s vision for implementation and

summarises the tangible envisaged implementation outputs and deliverables;

Governance, co-management and institutional responsibility for implementation which

provides a summary of the available existing capacity and shortfalls for implementation,

identifies the key organs of state responsible for implementation and briefly describes their

respective roles and responsibilities;

Right holding and allocation which provides a summary of how the new paradigm will work;

External stakeholders and stakeholder consultation

Strategy for implementation which is the road map that identifies the priorities and focus

areas for implementation;

Risk analysis which summarises the key implementation risks

Costing assumptions and methodology which summarises the costing assumptions for

determining resource requirements and informing the development of the costing model

and methodology used to do the costing;

Resources required for implementation which identifies the main cost drivers and the (non-

financial) resources required for implementation;

Financial implications which includes the development of a costing model that can be

completed by the Department once resource requirements have been finalised;

WHAT

establish community based legal entities

value adding

basket of species

safety @ sea

HOW

management processes

institutional responsibilities & arrangements

WHEN

timeframes - short, medium or long term

prioritisation

WHO

DAFF

Provinces

Municipalities

NGOs

Community structures

Private sector

WITH WHAT

HR & expertise

Funding

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Overview of critical success factors and return on investment which identifies the critical

actions and activities that are needed to make the implementation plan a reality and ensure

effective implementation;

Review, monitoring and evaluation which spells out how the review, monitoring and

evaluation of implementation will be done; and

Activity breakdown schedule which is the action plan and provides a breakdown of what

must be done, how, when, by whom and with what resources.

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2. BACKGROUND CONTEXT

Why is there a policy for the small-scale fisheries sector? Post 1994 an important limitation in fully transforming the sector relates to the definition of

subsistence fishing in the MLRA which restricts this category to those who fish for local consumption

with very limited local sale, thereby excluding other Small Scale and artisanal fishers who catch and

sell in order to sustain their livelihoods, albeit on a Small Scale. The definition is also confined to

harvesting and therefore tends to exclude those who are directly involved in pre and post

harvesting. This has particular implications for women in the regions where they are not directly

involved in harvesting but may be involved in bait preparation, cleaning, processing and marketing

of the catch.

The implications of this definition for Small Scale fishers were identified and in 2007, the National

Summit on Small Scale Fisheries elected and mandated a National Task Team (the NTT) with

representatives from fishing communities in all four coastal provinces to oversee the process of

developing policy to address the inequalities in the current dispensation with regard to the Small

Scale fisheries sector. Traditional Small Scale fishing communities want their traditional and

customary fishing practices recognized within the fisheries management system.

Taking the relevance of this policy into consideration, it is clear that a new approach is needed to

address the ecological sustainability of the resource and to provide for the progressive realisation of

human rights within the affected communities.

The Department recognises that in order to achieve this, the policy must:

a) ensure the sustainable consumptive use of marine living resources in a manner that ensures

equitable access to resources to reduce and eliminate the barriers experienced by Small

Scale fishers;

b) introduce a range of appropriate mechanisms that will promote an integrated approach in

the future and address possible conflicts in the intervening period;

c) provide a dispensation that will contribute to efforts to eradicate poverty, ensure food

security and promote equity without endangering the ecological sustainability of marine

living resources;

d) accommodate traditional/subsistence fishers effectively, secure the socia-economic rights of

traditional/subsistence fishers as well as provide equitable access to marine living resources;

and

e) provide for the upliftment of these communities by using appropriate support mechanisms,

education and training, infrastructure and participatory management practices.


Why is there a policy for the small-scale fisheries sector?

Overview of current policy and legislative framework for fisheries

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Overview of current policy and legislative framework for fisheries

Fisheries fall within the legislative competency of the national sphere of Government and are largely

regulated in terms of the MLRA. This is in line with the constitutional imperative to protect the

environment and secure the ecologically sustainable development and use of natural resources

while promoting justifiable economic and social development. The Act includes provisions that

regulate the use and management of marine living resources and ecosystems to achieve economic

growth, human resource development and capacity building within fisheries while applying

precautionary approaches towards such activities.

The MLRA also seeks to transform the inequalities of the past fisheries system in the measures it

introduces. In addition to the MLRA, various other national laws are relevant to the Small Scale

fisheries sector and the use and management of marine living resources. These include the:

a) National Environmental Management: Integrated Coastal Management Act, 2008 (Act

No. 24 of 2008) (ICMA);

b) National Environmental Management Act, 1998 (Act No.1 07 of 1998) (NEMA);

c) National Environmental Management: Biodiversity Act. 2004 (Act No. 10 of 2004)

(NEMBA);

d) National Environmental Management: Protected Areas Act. 2003 (Act No. 57 of 2003)

(NEMPAA);

e) Marketing of Agricultural Products Act, 1996 (Act No. 47 of 1996);

f) Animals Protection Act, 1962 (Act NO.71 of 1962) ;

g) National Ports Authority Act, 2005 (Act No.12 of 2005);

h) Companies Act, 2008 (Act No. 71 of 2008); and

i) Co-operatives Act. 2005 (Act No. 14 of 2005);

j) Communal Property Association Act.1996 (Act No.28 of 1996).

The Department recognizes that the transformation of society. skills development and secure access

to land, basic services and the resources on which livelihoods are dependent, are critical in

alleviating poverty and redressing past inequalities. These fishers and communities must be assisted.

where appropriate, to access mechanisms and policies aimed at redressing the past.

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3. VISION AND POLICY OBJECTIVES

Vision for the small-scale fisheries sector – the ‘desired future state’ as envisaged in the policy

The vision of Small Scale fishers as expressed in the Small-scale fisheries sector policy is of “a

sustainable, equitable, Small Scale fishing sector in which the well-being and livelihood of fishing and

coastal communities is secured and the health of marine ecosystems is maintained.” Small Scale

fishers are seen to be empowered to participate effectively in policy making and co-management of

the near shore marine living resources. Local, provincial and national Government provide support

to ensure that the Small Scale fisheries sector is able to contribute to poverty alleviation and food

security as well as to the growth and development of vibrant local economies based on the

principles of social justice, participatory democracy and sustainable marine resource utilization. To

achieve this vision, the focal areas of this policy are people and communities; supply chain from

catch to markets; governance, monitoring and enforcement; and learning, information and

sustainability.

This policy introduces a paradigm shift and new policy approach to the Small Scale fisheries sector.

The Department recognises that the new approach must address the existing need for

transformation, the progressive realisation of human rights within affected communities,

developmental objectives and current economic realities, and the ecological sustainability of the

resource; and contribute to community well-being and development.

Policy objectives The primary object of this policy is to introduce certain fundamental shifts in Government's

approach to the Small Scale fisheries sector. This entails adopting a developmental approach and an

integrated and rights-based allocation system which recognizes the need to ensure the ecological

sustainability of the resource; identifies Small Scale fishers as a category of fishers for the purposes

of the MLRA in law; and provides for community orientation in the management of the marine living

resources harvested by these fishers.

With this object in mind the following strategic policy objectives are proposed:

a) to give formal and appropriate legal protection for Small Scale fishers through the

(recognition) and allocation of their fishing rights;


Vision for the small-scale fisheries sector – the ‘desired future state’ as envisaged

in the policy

Policy objectives

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b) to promote equitable (race, gender, disability) access to and benefits from, marine

living resources, taking the historical background of the fishers into account;

c) to improve access to marine living resources through mechanisms that allow

preferential access for Small Scale fishers, including the designation of strips of land

where appropriate as coastal access land to secure access ;

d) to co-manage Small Scale fisheries sector and applicable marine living resources in

an integrated and holistic manner recognising national management protocols while

responding to local contexts;

e) to ensure the long-term sustainable use and management of marine living resources

and surrounding coastal environments;

f) to ensure the sustainable development of fisheries identified as Small Scale, making

sure that Small Scale fishing communities maximise the benefit from those resources

and are the main beneficiaries;

g) to facilitate value adding development and support through investment in processing

and marketing infrastructure in productive areas; developing relevant marketing

strategies for fishing zones; and capacity development programmes;

h) to facilitate the establishment of appropriate institutional arrangements at different

spheres of Government, in particular co-management arrangements, in order to give

effect to this policy;

i) to facilitate co-operative governance with relevant Government departments involved

in fishery dependent communities to promote poverty alleviation, food security,

sustainable livelihoods, fair and safe labour practices, and local economic

development;

j) to facilitate the establishment of mechanisms that will address Small Scale fishing

communities' issues relating to harbours, defence or other strategic facilities and

marine protected areas when exercising their right to fish;

k) to inform the process of amending the MLRA;

I) to introduce measures and mechanisms that prioritise the Small Scale fisheries

sector within fisheries as whole;

m) to introduce mechanisms and structures that promotes a community orientation, co-

management and community-based approach in the harvesting and management of marine living

resources within the Small Scale fisheries sector; and

n) to facilitate the participation of affected Small Scale Fishing Communities in the planning and

implementation of marine protected areas by the relevant department.

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4. POLICY SCOPE AND DELIVERABLES4.1 Developmental & transformation objectives Value addition and beneficiation

Figure 2 Value adding model

Capacity building and skills training

Technical and advisory support services

5. GOVERNANCE, CO-MANAGEMENT AND INSTITUTIONAL RESPONSIBILITY FOR IMPLEMENTATION


Developmental & transformation objectives

Right holding

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5.1 Governance model and mechanisms for management of small-scale fisheries

5.1.1 Co-management model The Directorate: Small-scale Fisheries has adopted an adaptive co-management approach which is aimed at:

introducing a more holistic and people-centred approach in managing the marine living resources within the small-scale fisheries sector;

managing the small scale fisheries sector effectively through a partnership between Government and the small-scale fishing communities;

ensuring the sustainable utilisation and equitable and orderly access to small-scale fisheries resources through improved management and regulation;

implementing an adaptive management approach; and

providing on-going support to small-scale fishing communities. Co-management is defined as “a partnership arrangement primarily between government and resources users, but may also include other stakeholders, to share the responsibility and authority for managing resources.”1 Co-management is a process that entails a participatory management approach. It is characterised by consultation between the relevant parties; negotiation over rules governing the resource; agreement on management roles and responsibilities; the delegation of certain management functions to resource; conflict resolution; and capacity building and empowerment. Adaptive co-management is the on-going evaluation and modification of management practices as new information comes to light and involves experimentation and ‘learning by doing.2 It is increasingly recognised as an appropriate approach in managing small-scale fisheries.

Co-management model

The Directorate Small-scale Fisheries has developed a three-tiered institutional model for co-management which seeks to:

provide a mechanism to deal with the critical issues of the over-exploitation of resources, user conflicts, disruption of social systems and increasing levels of poverty and food insecurity among small scale fishers and the communities at large;

create an enabling structure for the devolution of some management decisions to small-scale scale fishing communities; and

1 M Hauck and M Sowman, 2005, Guidelines for Implementing Coastal and Fisheries Co-management in South

Africa, p3 2 M Sowman, 2011, New perspectives in small-scale fisheries management: challenges and prospects for

implementation in South Africa, African Journal of Marine Science, 33:2, p301


Governance model

Roles & responsibilities of organs of state


Compliance monitoring & enforcement in the co-management model

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provide a platform for the inclusion of other stakeholders such as provincial governments, municipalities and the private sector.

This model, which is illustrated in the figure3 below, comprises of a Co-management Committee at departmental level; a regional co-management committee in each of the 6 small-scale fisheries zones; and local co-management committees which operate at community level. Figure 3 Three-tiered small-scale fisheries co-management model

Departmental Co-management Committee

Membership of this committee will consist of representatives from the regional co-management committees, stakeholder organisations, and the Chief Directorates Fisheries Research and Development, Marine Resources Management and Monitoring, Control and Surveillance. The committee will focus on high level coordination, policy and strategic issues. The Departmental Co-management Committee will ensure the implementation of resource management and co-management plans and agreements is in line with the SSFP. This committee will ensure co-ordination across the four coastal provinces oversee the provision of extension services in relation to government policy and process regarding resource utilisation, management and sustainability.

Regional Co-management Committees4

Once all the local com-management committees have been established, regional co-management committees will be formed. The purpose of these regional structures will be to address regional issues and challenges that affect everyone in specific region such as the demarcation of boundaries, how to deal with situations where species abundance is available for shorter periods than the allocated season, etc. The regional committees will comprise of representatives from the various

3 Provided by Abongile Ngqongwa, Deputy Director: Small-Scale Fisheries Management, 8 May 2013

4 Information provided by Abongile Ngqongwa, Deputy Director: Small-Scale Fisheries Management, 22May

2013

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local co-management committees making up the region. No external organisations will serve on the regional committees. The Directorate Small-scale Fisheries consulted local co-management committees and established that the majority do not want to have external organisations represented on the local or regional structures because this invariably complicates the power balance within the committee and leads to issues becoming politicised. Small-scale fisheries also expressed the opinion that these organisations do not always represent them well at meetings as they have other interests and agendas. There is also a problem with poor feedback to the community. In the rural areas of the Eastern Cape and Kwa-Zulu Natal traditional authorities have structures in place to deal with issues such as stock theft, aids and other matters of regional interest. Accordingly, the Directorate Small-scale Fisheries is keen to involve these traditional structures in small-scale fisheries.

Local Co-management Committees

The Draft Terms of Reference for the Small Scale Fisheries Co-management Committee developed by the Department highlight that establishing Small Scale Fisheries Local Co-management Committees is imperative, as these Committees would participate in joint management of marine living resources and act as the consultative forum to mediate the relationship between the fishers and the Department. Membership in the Committee would be for an agreed period, and it is critical that the Committee has full representation of all the wards in the community where fishers reside. Departmental Environmental Officer/s or management committees can coordinate the Co-management Committees, and ideally, a community or group of communities should have its own committee with a minimum of seven people consisting of a chairperson, deputy chairperson, secretary/convener; local compliance officer; catch data monitors, and other members drawn from various constituencies including Law Enforcement Agencies (Compliance), Community Development Workers, other government departments, local government, and NGOs and other relevant stakeholders. Only permit/ exemption holders can constitute the co-management committee, which will be selected also by permit or exemption holders. Ideally committee members should be individuals with the ability to represent the views and interests of the fishers. Appointment of members to the committee should ideally be in writing, and this will be done by the Chief Director: Marine Resource Management. Members of the Co-management Committee would require a written mandate from the fishers to represent them at different platforms and at committee meetings. The roles and responsibilities of the individual members of the Local Co-management Committee are highlighted below: Table 1 Roles and responsibilities of committee members

DESIGNATION ROLES & RESPONSIBILITIES

Chairperson Provide a report on the status of the fishery and the activities of the Committee during the course of the year at the Annual Fisher Meeting;

Guide the meetings of the Committee; Ensure all notices relating to the meeting have been sent. Ensure that a quorum is present (two thirds of committee will constitute a

quorum); Ensure minutes are read and confirmed;

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DESIGNATION ROLES & RESPONSIBILITIES

Facilitate the meeting agenda to ensure timeous completion of meetings and orderly contribution of meeting participants;

Opening and closing of the meeting.

Deputy chairperson Perform all the duties of the chairperson in the absence of the chair.

Treasurer Provide a report on the status of Committee funds (if any) at the Annual Fisher meeting;

Ensure that the Committees funds (if any) are wisely managed and expended on the purposes for which they are raised;

Keep accurate records of the Committees finances; Maintain a bank account (in the Committee’s name) for this purpose; Accept any funds for the Committee and ensure that they are paid into the

bank account; Ensure that a receipt is provided (carbon copy) for all funds received and to

obtain a receipt for any funds paid.

Secretary/Convener Calling the meeting to a fixed place, date and time and assisting with other arrangements for the meeting;

Attending to any notices or other correspondence for the Committee; Maintenance of the Committee file; Record and file minutes of meetings.

Local compliance officer

Inform the meeting of any transgressions and action taken; Inform the meeting about legislation and take part in the discussions.

Catch data monitors Give feedback to the meeting about the catching data of fishers as well as report non-compliance to the Fishery Compliance Offices.

5.1.2 Management instruments and tools The key management tools and instruments needed to support a community-based and co-management approach for managing marine resources within the small-scale fisheries sector are captured in the table below. The table also summarises the purpose of these tools and instruments in implementing the Policy and indicates at what sphere or interface the tool/instrument should operate, in other words national, provincial or local government, within the sector or at community level. The responsibility for developing and implementing these management tools lies primarily with the Chief Directorate Marine Resources Management, specifically the Directorate Small-scale Fisheries. The Directorate Resources Research will provide support by undertaking scientific research and providing technical advice on the demarcation of the basket of species distribution, potential harvest levels, fisheries plans etc. Table 2 Management instruments

MANAGEMENT TOOL / INSTRUMENT

SPHERE OF OPERATION PURPOSE

Comprehensive assessment of status of resource/s

The assessments will focus on key species which are utilised by SSFCs across the whole population of a species The assessments will be conducted by the Directorate Research in consultation with SSFCs. The relevant provincial and local authorities, and where appropriate

To determine which species should be made available to SSFs and how much

To determine the distribution of basket species To set sustainable harvesting targets (quantity & distribution)

To communicate assessment findings available to affected SSFCs

To provide input on small-scale fisheries sector needs and interests in setting

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existing rights holders and NGOs should also be consulted The assessments will include data gathered by Catch Data Monitors and inputs made by the affected SSFCs The assessments should include both the marine ecosystem and the availability and distribution of species (NOTE: Clarification is needed on the comprehensiveness & scope of these assessments) The assessments should, where possible, consider provincial and local economic development priorities so that effort can be directed at certain fishery species based on these priorities

priorities for Provincial Growth and Development Strategies, Coastal Management Plans and Integrated Development Plans

Demarcation of Small Scale Fishing Community areas

Local level – SSFC recognized by the Minister Minister should consult with other organs of state and relevant stakeholders to ensure that SSFC areas are taken into account when determining spatial planning and development priorities and to ensure the demarcation of areas considers restrictions imposed by other authorities The determination of the boundaries of SSFC areas to consider social and economic factors, migratory patterns of fish, marine ecosystem aspects and the historical recreational use of the area

To determine the boundaries of SSFC areas demarcated for Small Scale fishers

Reserve right of access to a designated SSFC area for the exclusive use of a particular SSFC

To grant exclusive use of specific marine living resources in such areas to a particular SSFC

To provide for the co-management of such areas by the affected SSFC and Branch Fisheries Management and provide the vehicle for considering and approving developmental activities in demarcated areas

To identify designated landing sites for SSFCs

To identify measures for community-based monitoring and catch-recording

Management plans Local level – SSFC area Management plans should be aligned with other plans such as Coastal Management Plans and IDPs and take provincial and local economic development priorities into account where possible (NOTE: Clarification is needed on whether or not the content, information requirements and procedures for preparing management plans should be

To guide and facilitate the implementation and day-to-day management of activities within SSFC areas

To ensure coordinated action within SSFC areas

To provide guidance on how the needs and interests of young fishers – particularly in child-headed households, should be provided for in the SSFC area

To identify measures that will ensure gender equity, and safe and fair labour practices

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defined in Regulations or Guidelines) (NOTE: Clarification is needed on how the interests of senior citizens & disabled persons within SSFCs will be addressed)

Total Allowable Catches (TAC)

Basket areas selected according to natural biogeographic areas & existing administrative boundaries Each basket area can be subdivided into community zones

Allocation per basket area according to existing limits and historic catch distribution

Total Applied Effort (TAE)

Allocation within existing effort controls (number of fishers, boat sizes, boat numbers, gear limits). No escalation

Output control5 To limit un-quantified effort catches

(eg shore angling, bait collection) by daily bag limits, size limits, area or time restrictions, seasonal closures, gear & fishing method specifications

Control mechanisms defined for each species within each basket area

Monitoring and recording catch data

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Community-based catch monitors to be appointed within each community; to be trained in methods and species identification

Accurate daily records to be obtained of all species harvested by the Community, including species name, date/time, gear used, sizes and numbers etc.

Agreements Between Branch Fisheries Management and individual SSFC CBLEs Where appropriate CBLEs may, subject to approval by the Branch Fisheries Management, enter into agreements with neighbouring CBLEs to access migratory species forming part of the basket of species allocated to them

To govern the relationship between Branch Fisheries Management and CBLEs

To provide for:

the duties and obligations of the parties to the agreement;

access to, and use of marine living resources in, Small Scale fishing community areas and protected areas;

development of economic opportunities, including opportunities for (vulnerable groups);

financial and other support to ensure the effective administration and implementation of co-management agreement;

the duration of the agreement;

breach of the agreement; and

measures for dealing with and resolving disputes and conflicts.

5 Extracted from a Powerpoint presentation on identifying suitable species, gear and areas made by the Chief

Directorate Fisheries Research and Development to the SSFP Task Team on 16 May 2013 6 Information provided as DRAFT by R Tarr in commenting on the Draft Report

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5.2 Roles and responsibilities of organs of state

Identify which organs of state in all 3 spheres will be responsible for implementing the policy

Brief description of their roles and responsibilities (in table format) Table 3 Government roles, responsibilities and accountabilities

ORGAN OF STATE GOVERNANCE ROLE RESPONSIBILITY ACCOUNTABLE TO

DAFF

DoL

DTI

DSD

DRD&LR

DoCOGTA

Northern Cape Provincial Government

Western Cape Provincial Government

Eastern Cape Provincial Government

Kwa-Zulu Natal Provincial Government

Municipalities

5.3 Institutional arrangements

Brief description of the coordinating structures within government

Figure 4 Co-ordinating structures

21

Table 4 Co-ordinating and intergovernmental structures

STRUCTURE COMPOSITION ROLE

CAF Representation from government, industry & interest groups – must be broadly representative and multidisciplinary. May include members of SSFCs as representative of an interest group.

Established in terms of the MLRA to serves as national forum that advises the Minister on any matter referred to it

Consider information submitted to it by industry & interest groups

Working Group for the small-scale fisheries sector

Representation from government, SSFCs & technical experts

Vehicle for interaction between the sector and the Department

Provide technical advice to CAF on specific issues relating to SSFC and implementation of the SSFP

Inter-governmental co-ordinating committee

Representation from DAFF, the DTI, DEA, DOT. DOL, COGTA, and where appropriate the provincial departments that play a supporting role in implementing the Policy

Address issues of an operational nature

Ensure coordinated action and eliminate duplication of effort

Bilateral working group/task team

It is envisaged that these will be bilateral coordinating structures comprising of representation from the Directorate Small-scale Fisheries and another national organ of state (eg DTI, SAMSA, COGTA). Where appropriate other Directorates in the Branch Fisheries Management may be included.

Cooperation and coordination on specific operational aspects (such as basic conditions of employment for small-scale fishers, safety at sea, training and support on the establishment and management of co-operatives, law enforcement, access to marine protected areas, etc)

PROVINCIAL COASTAL COMMITTEES

MINISTER

INTER-GOVERNMENTAL COORDINATING

COMMITTEE

BILATERAL WORKING GROUP

BILATERAL WORKING GROUP

DAFF FISHERIES BRANCH

CAF

SSF WORKING GROUP

22

5.2.4 Small-scale Fisher Support Hubs (This will include reference to DAFF Community Development Workers)

5.4 Compliance monitoring and enforcement

5.5 Overview of existing capacity Directorate: Small Scale Fisheries Management The Directorate: Small Scale Fisheries Management has direct responsibility for the implementation of the policy. The aim of the Directorate is to administer the provisions of the Marine Living Resources Act (MLRA), manage, promote, and support the small-scale fisheries sector. To fulfil this objective, the directorate must fulfil the following functions: • Develop policy, norms and standards for Small scale Fisheries management • Manage the administration and support of small-scale fisheries sector in accordance with

legislative requirements • Manage the verification of product flow through the fishing value chain • Develop the necessary networks to maintain and manage stakeholder participation The Directorate has an approved service establishment of 11 staff members comprising a director, deputy director, Assistant director, six environmental officers, a senior administrator and an office administrator. Currently, there are 10 staff members as only five of the six environmental officers have been appointed – there is one vacancy. Table 1 highlights where the staff members are/should be stationed and what their responsibilities are. Table 5 Existing capacity in D:SSF

POST LEVEL LOCATION ROLES AND RESPONSIBILITIES

Director Western Cape (Cape Town)

Provide leadership for the management of the Small Scale fisheries sector to ensure sustainability of the sector, including the implementation of policy and the regulatory framework for the sector.

Deputy Director Western Cape (Cape Town)

Manage implementation of small scale fisheries Policy and interim activities in line with allocated fishing rights, permits, exemptions and any other applicable measures in the KwaZulu Natal, Eastern Cape, Western Cape and Northern Cape (142 identified fishing communities in four provinces). Management of Catch data monitoring for all provinces.

Assistant Director Eastern Cape (East London)

Assist in the Management of the implementation of small scale fisheries Policy and interim activities in line with allocated fishing rights, permits, exemptions and any other applicable measures in the Eastern Cape (82 identified fishing communities). Management of Catch data monitoring for the Eastern Cape.

Principal Environmental Eastern Cape (East Facilitate implementation of small scale fisheries

23

POST LEVEL LOCATION ROLES AND RESPONSIBILITIES

Officer (Specialised production grade C)

London) [VACANT]

policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 10 identified fishing communities. Development of small scale fisheries database.

Senior Environmental Officer Eastern Cape (East London)

Facilitate implementation of small scale fisheries policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 14 identified fishing communities

Environmental Officer Eastern Cape (Port St. Johns)

Facilitate implementation small scale fisheries policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 18 identified fishing communities

Environmental Officer Eastern Cape (Port St. Johns)

Facilitate implementation small scale fisheries policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 18 identified fishing communities

Environmental Officer Eastern Cape (Port Elizabeth)

Facilitates implementation small scale fisheries policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 22 identified fishing communities

Environmental Officer Western Cape (Cape Town)

Facilitates implementation small scale fisheries policy and interim activities in line with allocated fishing rights, permits, exemptions and other applicable measures to 36 identified fishing communities in the Western Cape and Northern Cape. Management of Catch data monitoring

Senior Admin Clerk Western Cape (Cape Town)

Processes export, transport and catch permits, which come in high numbers, for the Small Scale fisheries sector. Provide administrative support to the directorate.

Capacity of other Directorates in the Branch Fisheries Management Capacity within small scale fishing communities Some uncertainty exists as to the exact number of small scale fishing communities and the number of fishers in these communities as the process of identifying these communities is not yet complete. Accordingly the baseline data on current capacity and human resources deployment within community structures is limited. The available data vary between 140 – 155 communities with about 30 000 fishers. Currently, the D:SSF has identified 142 small-scale fishing communities distributed along the coast. It is also not clear how the majority of the communities are organised, or what the human resources exists in these communities. One of the problems in establishing capacity levels is that the fishers move in and out of communities to look for work and employment elsewhere. In resourcing the co-management structures, it is important to recognize communal relationships and local institutions like traditional leaders, traditional authorities and community trusts. It is also useful to understand the dynamics and existing roles in communities that already have co-management structures, for example the KwaZulu- Natal communities of Mbonambi and kwaSokhulu and the Eastern Cape community of Mankosi. A detailed analysis is needed of the deployment of capacity

24

and human resources in the pilot communal rights projects in Doringbaai and Helderberg Strand to get a better understanding of capacity requirements for CBLEs. Capacity within external organisations Many of the implementation activities for the SSFP require coordination and/or support from other organs of state, for example, the Department of Trade and Industry (DTI) is playing a role in financing cooperative activities; the Department of Transport (DoT) will be required to provide compensation of fishers for accidents at sea; and organisations like the South African Maritime (SAMSA) will also be involved with issues around safety at sea and training activities. At local government level, municipalities may be able to provide support towards policy implementation, although this may not be universal as a significant number of municipalities suffer HR capacity constraints. However, Community Development Workers (CDW) employed by municipalities may be capacitated to provide access to information on government services for small-scale fishers. CDW are multi-skilled and trained personnel who are tasked with improving communication and networking between government and the local community, and for ensuring that government services reach their targets.7 In 2010, there were 555 CDWs in Eastern Cape municipalities; 494 in KZN, 312 in the Northern Cape (NC) and 175 in the Western Cape (WC).8 It would be useful as part of the early implementation exercises to engage municipalities in coastal towns where small scale fishery communities have been identified to find out what the status and capacity of CDWs is, and if at all, to what extent they may be utilised as a link between DAFF and communities. If they can be involved, it would be beneficial to have them on co-management committees. Other non-governmental organisations and academic institutions will play a role by providing technical assistance to the communities, as most of these organisations already have good working relations and have established trust with the communities. The involvement of these stakeholders and numerous others will provide some much needed human capacity to the implementation of the policy. Establishing partnerships and the systematic coordination of available resources, which should begin with a systematic assessment of the available capacity and where it can be utilised, is key to the successful implementation of the SSFP.

7 DPSA. 2009. Draft policy: Community Development Workers (CDW) Programme 8 DPSA. 2011. Community Development Workers National Directory

25

6. RIGHT HOLDING AND ALLOCATION OF SMALL-SCALE FISHING RIGHTS

This section will set out how the system of right holding and allocation of small-scale fishing rights will work and include aspects such as the criteria and procedures for verification of small-scale fishers, determination of right holding, determination of species to be allocated and quantum etc. as envisaged in chapter 6 of the Policy.

6.1 Community-based right holding

6.2 Allocation of small-scale fishing rights

6.3 Basket of species (multi-species approach) Guidelines informing decisions about basket of species:

sustainability – long term benefits for all adhere to current control mechanisms (TAC; TAE; output control ie. size, bag, area limits) monitoring, control and reporting systems essential

Table 6 Basket of species distribution


Community-based right holding

Allocation of small-scale fishing rights

Basket of species approach

Conflict resolution mechanisms

26

6.4 Conflict resolution mechanisms Conflict that arises between members of a SSFC must be resolved in terms of the internal conflict resolution

mechanisms which the members of that SSFC have agreed upon when they established the CBLE. In such

circumstances no appeal is available the Minister. There is no recourse to the Minister where an individual

belonging to a CBLE is aggrieved by any decision taken within those structures. The appeal provisions do not

apply in these circumstances.

The Director-General (DG) of DAFF may of his own volition appoint an accredited mediator who is acceptable

to the parties to assist in resolving any issues or dispute that arises between those parties. Those disputes

may include the ineligibility of individuals that were members of a CBLE, the preparation or adoption of a

constitution for the CBLE, conflicts between SSFCs, conflicts between SSFC and CBLE, conflicts between CBLEs,

conflicts between CBLE and its members or between members or committee members of CBLEs. Accordingly,

the Policy proposes that conflict resolution mechanisms be used where a conflict occurs and the DG would be

responsible for appointing the mediator. This was done as SSF needed to raise the issue with someone,

somewhere and the best person is the DG. In circumstances where the parties cannot agree on the person

who should mediate the matter the DG may appoint a person who is appropriately qualified to mediate on

behalf of the community.

27

Table 7 Conflict resolution

ACTION TO BE TAKEN BY WHOM METHOD RESOURCE REQUIRED

COMMENTS

ESTABLISH CONFLICT RESOLUTION MECHANISM

Form needs to be designed for parties who want to lodge dispute.

DAFF

A panel of mediators should be available to be used when conflicts arise

DAFF DAFF should appoint or establish a panel of persons whom it can draw upon to mediate any matter that arises between the parties.

DECLARE DISPUTE & APPOINT MEDIATOR

Party against whom dispute has been lodged must be provided with a form to comment on the complaint and by when.

Party against whom dispute is lodged.

This may be another form that DAFF may have to complete.

Opposing parties to be called in by DAFF to advise on the appointment of a mediator.

DAFF DAFF is to notify the parties of the proposed mediators and the parties may select a name on that list or two or three names and where the same names are selected DAFF may choose the mediator or decide to consult with the parties on the mediator.

Mediator is appointed DAFF Need to consider who is going to be responsible for paying of the mediator and possibly the venue to be used.

MEDIATION PROCESS

Date, time and venue set for the mediation process.

DAFF It would be appropriate for DAFF to act as the persons regulating this process and it may require a separate office or boardroom for the mediation process.

Mediation decision Mediator Inform parties in person

It Is best that parties be informed by the mediator of the outcome unless it is impractical or very expensive to do so. This would bring closure to the matter for the parties.

28

7. EXTERNAL STAKEHOLDERS AND STAKEHOLDER ENGAGEMENT

Figure 5 Stakeholder dynamics

Specify what measures/engagements are needed to provide for stakeholder consultation in implementing various policy objectives and directives (eg identification of fishers, demarcation of areas, establishment of co-management structures etc). This will distinguish between what needs to be done in the initial implementation stage (start up) as well as ongoing implementation

Identify who (organ/s of state and sphere of government) is responsible for each of the above mentioned consultation measures/engagements

Establish small-scale fisheries sector expert reference group

The Department is required to inform the community either by means of workshops, information

campaigns or any means that it considers appropriate of the criteria for such a community to be

regarded as a Small Scale Fishing Community (SSFC), the reasons for being declared a SSFC and the

implications of being so declared in terms of the Policy is part of the information sharing process. It

is important that communities are informed of the implications of being declared a SSFC so that they

can make informed decisions.

To ensure transparency, fairness and a common understanding of the implications of the SSFP, how

it is to be implement, what criteria are to be applied in the application and allocation process and

the procedures that will be followed in this process, it is recommended that the Fisheries Branch

develop and implement a clear and structured communication and awareness raising strategy. This

HIGH INFLUENCE

RESTRAINING DRIVING

LOW INFLUENCE


Who are the key external stakeholders

What are the platforms for engaging stakeholders

29

strategy should be rolled out from the outset and continue throughout the application and

allocation process. At various stages of this process there will be a need to communicate information

and clarify different perceptions and interpretations of what is required to implement the SSFP.

Much of this information can and should be communicated to the SSFCs at the outset and repeated

at strategic intervals in the roll out of the process. Information to be communicated includes, inter

alia:

where, by whom and how information on SSFs is to be gathered and for what purpose this

information will be used;

interpretation of the criteria for SSFs and what thresholds (cut off points) will apply;

implications of meeting the criteria and what the ultimate possible outcome will be (without

making any promises of rights being allocated);

the need for SSFs and SSFCs to organise themselves and identify interim community

representatives for the purposes of applying for recognition as SSFC so that DAFF can

communicate with SSFC representatives (and not individuals);

steps and procedures involved in the application and allocation process;

where application forms can be obtained and what information is required to complete these

forms;

species included in the ‘basket of species’; and

implications for the SSFP for current right holders.

30

8. IMPLEMENTATION ROADMAP

Road map for implementation

Develop programmes and strategies to facilitate and promote value addition, alternative

livelihoods, development finance and beneficiation

Management the small-scale fisheries rights application and allocation process

Putting systems & baselines in place

Information sharing (includes dealing with current right holders)

Recognition & verification of SSFs & SSFCs (includes compilation of provisional list of

small-scale fishers to be included in CBLE and verification of list of SSF for CBLE)

Establishment of CBLEs (includes CBLE compiles list of eligible fishers and applies for SSF

rights)

Review & granting / refusing of fishing rights

Appeals

Research

Compliance monitoring, surveillance & enforcement

Resource management and co-management


Capacity building, extension services and stakeholder engagement





31

9. RISK ANALYSIS

Key risks of not implementing/partial implementation One of the risks to the successful implementation of the SSFP is the lack of participation, by the Chief

Directorate Monitoring, Control and Surveillance, in management structures established to support the

implementation of the SSFP. For example, there is a huge gap in understanding, of the implications of the SSFP

for resource management and compliance, between the compliance officials on the ground and management.

Fisheries Compliance Officers are not familiar with the SSFP, what co-management entails or that the small-

scale fishers will monitor their own catches.

There is also a problem of lack of trust and bad relations between many small-scale fishing

communities and Fisheries Compliance Officers.

the tensions and conflicts between municipalities and traditional authorities could impacted

negatively on communities’ ability to share in the benefits from small-scale fisheries;

the lack of robust governance institutions within rural communities means a multiplicity of actors

from diverse sectors operate in these communities – mostly in isolation of the formal government

institutions and with their own agendas


32

10. COSTING ASSUMPTIONS AND METHODOLOGY

Costing assumptions The assumption on which costing model is based were developed through consultation with the key

role players. The main assumptions for making the computations and qualifying the financial

implications of implementation are summarised below.

For costing purposes it is assumed that:

The activities to cost will be grouped according to the following functions:

Value addition and supply chain (from catch-to-markets);

Verification of small-scale fishers, determination of right holding, community-based legal

entities & allocation of rights;

Management of marine of living resources (instruments & tools);

Institutional arrangements;

Capacity building, skills training & extension services (technical & advisory support services);

Social security & disaster relief;

Safety @ sea and labour rights;

Compliance monitoring & enforcement;

Monitoring & evaluation of policy implementation;

The costing will be completed for a period of 5 years

The main cost drivers are employment costs (resources), operational costs (goods and services)

and capital expenditure associated with operations (capital items) and possible contingency

costs;

Employment costs for each salary band are calculated as the average rate (based on the

average of actual salaries and actual numbers of staff across agreed salary bands) per hour

irrespective of whether time is spent on dedicated SSFP duties or shared duties;

The calculation of the average salary rate per salary band 4 -12 is based on the Public Service

Translation Key9 of the Cost-of-Living Adjustment (COLA) for employees on salary levels 1 to 12

and covered by Occupation Specific Dispensations (OSDs), issued by the Department of Public

Service Administration with effect from 1 May 2012;10

The calculation of the average salary rate for the Senior Management Service is based on an

increase of 18% per job level from level 12 as the SMS salary bands were not made available to

the service provider;

9 In terms of the Public Service Act and Correctional Services Act

10 Cost-of-Living Adjustment with effect from 1 May 2012PERSAL tables 225 & 232


Costing assumptions

Methodology

33

The standard total hours (for determining employment cost per hour) is calculated on an eight

(8) hour work day at 21.67 days per month. This translates to 1920 standard hours per

resource;

CPIX will be applied as the inflation factor to reflect the increases of costs year-to-year – 7% for

year 2 and 8% for years 3, 4 and 5;

The number of units to be costed will be set with a default of 1;

Each cost driver for each activity-to-cost will allocated a cost frequency (recurrent or once off);

The goods and services required is based on an assumed standard cost for goods and services

and, if required, a direct additional allocation for a specific cost to be incurred. The standard

cost is calculated by taking the total goods and services expenditure in the MLRF 2013/14

Expenditure Budget and dividing it by the total budgeted employee hours (assumed at 160 hour

p/employee p/month. This translated into a standard goods and services cost of R233.74 per

standard resource hour. The goods and services cost included in the costing model is calculated

by applying the average goods and services standard cost of R233.74 to the resource hours

required captured in the resource sheet in the costing model. The costing model allows for

additional goods and services items for each Activity-to-Cost to be captured by the Department

if required;

The capital items required is based on an assumed standard cost for capital items and, if

required, a direct additional allocation for a specific cost to be incurred. The standard cost is

calculated by taking the total capital items expenditure in the MLRF 2013/14 Expenditure

Budget and dividing it by the total budgeted employee hours (assumed at 160 hour p/employee

p/month. This translated into a standard capital items cost of R11.01 per standard resource

hour. The capital items cost included in the costing model is calculated by applying the average

capital items cost of R11.01 to the resource hours required captured in the resource sheet in

the costing model. The costing model allows for additional capital items for each Activity-to-

Cost to be captured by the Department if required;

The costing model allows for contingency items for each Activity-to-Cost to be captured by the

Department if required;

If any cost driver was allocated a once off cost type it was assumed that it was incurred in year

one;

Certain Activities-to-Cost refer to set up only and are viewed as “once off” costs, whereas the

majority are maintenance costs associated with the day-to-day implementation of the

Regulations and viewed as “recurrent” costs;

Number of resources per job level is determined as the number of hours as captured in the

resourcing costing sheet dived by the standard hours of 1920 rounded upwards to the nearest

1;

For each cost driver we provided for up to 10 items to be captured;

Agreed that the categories for reporting purposes of the costing model are:

MRM ex SFF

MCS

AED

FR&D

SMALL-SCALE FISHERIES

Other

34

Costing methodology

List of activities-to-cost was agreed with client and Internal Task Team after which the costing

exercise commenced.

Line managers captured all activities.

Each activity-to-cost was allocated to:

a cost type,

reporting category

number of units to be costed

Line managers populated the following data on the resource sheets:

% allocation of resources between stakeholders,

Resource required (designation)

New or existing resource

identified the job level (salary scale)

frequency of job to be carried out

duration of the activity based on the frequency selected

if resource is new/existing

Line managers populated the following data on the goods and service sheets:

% allocation of goods and service costs between stakeholders,

Goods & services required

frequency of goods and services required

costs of identified additional goods and services

Line managers populated the following data on the capital items sheets:

% allocation of capital items costs between stakeholders,

capital items required

frequency of capital items required

costs of identified additional capital items

Line managers populated the following data on the contingencies sheets:

% allocation of contingencies costs between stakeholders,

contingencies required

costs of identified contingency

35

11. RESOURCES REQUIRED FOR IMPLEMENTATION

LINE ITEM REF

FUNCTION ACTIVITIES CHIEF

DIRECTORATE

Cost of Existing Job

Hours Required

Cost of New Job Hours Required

1 Value addition and supply chain (from catch-to-markets)

investing in processing and marketing infrastructure in productive areas (including provision & maintenance of transport, waste management & cold chain storage facilities)

AED 74 530 223 995

2 implementing Quality Assurance and Health & Food Safety (human consumption)

Other - 649 426

3 developing new products (identify new species)

AED - 491 921

4 developing relevant marketing strategies for fisheries zones

AED 7 887 -

5 developing area and fishery economic development zones with purpose specific development programmes in each zone;

AED - -

6 developing fishing harbours and other landing sites to ensure equitable access to marine resources to promote local economic development

AED 5 047 846 304

7 SSF label/fair trade certification AED - -

8 Alternative livelihood not value chain

promoting job creation through the implementation programmes such as IPAP, CASP, SCL, WfF, & Programmes of WWF & private sector

AED - 61 561

9 promoting tourism, arts, crafts, restaurants, accommodation

AED 6 730 -

10 aquaculture development - build on current acquaculture strategy

AED 25 237 302 599

11 Development Finance and Beneficiation

establish Fisheries Development Bank with low interests loans(& other development finance schemes)

Other 3 607 -

12 subsidisation of fishing gear, vessels, facilities, operational

Other 3 607 -


36

LINE ITEM REF


DIRECTORATE


Hours Required


costs, and other activities

13 fishery processing/beneficiation strategy (build on existing strategies such as Aquaculture, IPAP)

MRM (excluding

SSF) 2 482 -

14 Manage SSF rights application & allocation process

distribute baseline information form, gather baseline information on small-scale fishers & small-scale fishing communities & capture in database

SSF 35 269 64 926

15 awareness raising & information sharing to small-scale fishing communities on Policy interpretation, criteria for small-scale fishers, rights application & allocation process etc.

SSF 107184 185 153

16 establish systems for administering applications for recognition as SSFC and systems for the review of these applications

SSF 111783 405 272

17 implement & maintain systems for administering and reviewing applications for recognition as SSFC & making recommendations to the Minister

SSF 91 610 11 681

18 publish recognition of SSFC by Minister in Government Gazette & local newspaper

SSF 14 722 -

19 advertise call for names for the compilation of a provisional list of small-scale fishers to be included in CBLEs

SSF 9 916 -

20 capture names in database for the compilation of a provisional list of small-scale fishers to be included in CBLEs

SSF 111783 502 620

21 compile provisional list of small-scale fishers to be included in CBLEs

SSF 7 634 973

22 verification of list of small-scale fishers - may be done internally or outsourced to independent third party

SSF 66 123 33 622

23 consider objections from communities & finalise list

Other 159675 -

24 facilitate & provide support to SSFCs with the establishment & registration of CBLEs

SSF 107184 185 153

25 provide guidance to CBLE on numbers of fishers eligible to go to sea/harvest marine living

SSF - 56 524

37

LINE ITEM REF


DIRECTORATE


Hours Required


resources

26 provide assistance & guidance to CBLE with applications for fishing rights

SSF 9 315 6 674

27 establish, implement & maintain systems for administering & sorting fishing right applications

SSF 9 315 6 674

28 review fishing right applications & make decision to grant/refuse right & decide on quantum & conditions of allocating right

SSF 66 123 33 622

29 establish system for administering & referring appeals to the Marine Living Resources Review Board

SSF 34 575 6 674

30 establish & maintain administrative system for referring disputes for mediation

SSF 9 315 6 674

31 develop & implement system for informing current right holders of the implications of the SSFP

SSF 48 709 25 267

32 Research scientific monitoring of landings (catch, effort and biological data) -

R&D - -

33 additional data capture and analysis

R&D - 363 875

34 comprehensive assessment of status of resource/s;

R&D 71 841 684 391

35 improved assessments through fishery independent research surveys, modelling, biological research

R&D 46 624 438 521

36 IKS - input to research R&D - -

37 provide scientific input & advice to Resource Management on technical control measures

R&D - -

38 social and economic research R&D - -

39 MCS monitoring MCS - -

40 control & surveillance activities (including inspections)

MCS - 317 666

41 collecting data of own operations MCS - 144 234

42 MCS - -

43 develop monitoring database - follow -up on court rulings

MCS - -

44 establish, develop & maintain community compliance structures (honorary community fishing inspectors)

MCS 173432 242 583

45 develop and implement self-regulating role for SSF communities through co-management; and

MCS 7 210 29 470

46 provide guidance on how co-management structures monitor

SSF 2 555 7 518

38

LINE ITEM REF


DIRECTORATE


Hours Required


and enforce TAC/TAE allocated to SSF community-based legal entities

47 Resource Management identification and demarcation of Small-scale fishing community areas;

SSF 7 197 10 223

48 compilation and implementation of management plans;

SSF 14 246 1 261

49 setup the required structures & put admin support systems in place, maintain admin support systems

SSF 49 288 6 015

50 negotiation of co-management agreements

SSF 43 283 77 928

51 establish & maintain Conflict Resolutions Unit to administer disputes to be referred to mediation & appoint accredited mediators

Other 30 125 8 422

52 update & maintain database for management

SSF 50 844 282 004

53 establish & maintain systems for permitting and regulation

SSF 40 749 282 004

54 technical control measures – TAC/TAE, closed & open seasons, bag & size limits, fishing methods & tools and monitoring and recording of catch data;

SSF 321273 3 216

55 Institutional arrangements

establish and maintain the CAF & sub-committee/working group for small-scale fisheries sector

SSF 7 064 2 555

56 establish and maintain the Small-scale Fisheries Management Working Group (departmental working group)

SSF 34 622 19 480

57 establish & maintain Departmental small-scale fisheries co-management structure

SSF 31 001 66 739

58 establish & maintain regional small-scale fisheries co-management structures (for each zone)

SSF 22 002 33 914

59 establish & maintain small-scale fisheries co-management structures at community level

SSF 31 001 66 739

60 establish & maintain fisher-support hubs (to provide extension services, assistance with permit applications, access to information about fish movements, weather, market prices )

SSF 31 001 66 739

39

LINE ITEM REF


DIRECTORATE


Hours Required


61 establish & maintain inter-governmental working group - national & provincial

SSF 14 344 18 393

62 Capacity building, skills training & extension services (technical & advisory support services)

establishment & provision of dedicated extension & support services for small-scale fishing communities

SSF 38 578 300 050

63 provide education & skills training in processing, storing, packaging, marketing, transporting and exporting of fish

SSF 8 384 4 598

64 provide education & training on basic business skills (such as financial management - eg cash budgeting, flow management & basic accounting; human resource management & fair labour practices; legal compliance; logistics; and business management)

SSF 3 609 7 934

65 awareness raising, training & capacity building to ensure small-scale fishing communities are able to manage and use marine living resources in their areas;

SSF 2 707 9 830

66 provide education & training on marketing, maximising value addition and participating meaningfully in strategic planning processes that impact on their livelihoods and sector such as the IDP process;

SSF 3 609 12 623

67 provide support & guidance on establishing local community-based legal entities (including step-by-step guideline on establishing, registering & managing CBLE)

SSF 63 106 70 712

68 provide training & guidance on the preparation and implementation of management plans;

SSF 11 063 10 218

69 SSF - -

70 provide basic conflict resolution training

SSF 7 812 14 430

71 provide education & training on training on recording and monitoring catches

SSF 7 219 206 112

72 provide education & training on identification of important species and monitoring and verification of catches;

SSF 7 219 206 112

40

LINE ITEM REF


DIRECTORATE


Hours Required


73 provide education & training on participation in and the effective and efficient functioning of the co-management committees;

SSF 11 059 19 000

74 providing support & guidance on how co-management structures monitor or enforce the TAC/TAE allocated to the Small Scale fishing community based legal entities;

SSF 3 305 2 044

75 providing support & guidance to enable these legal entities meet their obligations in keeping community catch records and analysing reports;

SSF 6 131 10 102

76 provide education & training on important species identification, monitoring and verification of catches; and

SSF 6 131 10 102

77 develop user-friendly guidelines and manuals on various topics (eg basic business management, preparation of management plans, EAF, compliance, co-management, how to run meetings etc.)

SSF 5 109 30 326

78 Stakeholder Engagement and communication

develop & implement Communication Strategy

Other - -

79 facilitation of stakeholder engagement

Other - -

80 Information sharing providing access to research findings and information on climate, the movement of fish, appropriate technology, permits, stock assessments etc.

R&D - 12 608

81 Social security & disaster relief

facilitating the process to ensure SSF are catered for in the social security net & disaster relief framework within DAFF

Other - -

82 providing assistance to SSFs to submit claims to apply for disaster relief

Other 1 863 1 022

83 investigating and establish mechanisms to ensure that provision is made for SSF communities to have access to disaster relief assistance

Other 1 863 1 022

84 investigate and discuss SSFs’ access to the Road Accident Fund, or some similar instrument, with the DoT.

Other 3 352 1 022

85 Safety @ sea and labour rights

establishing basic conditions of employment, including

SSF 3 352 1 022

41

LINE ITEM REF


DIRECTORATE


Hours Required


occupational safety at sea standards and conditions, for the sector; and

86 develop and enforce appropriate minimum safety standards

SSF 13 746 -

87 Monitoring & evaluation of policy implementation

develop and maintain a M&E system to measure the performance and effectiveness of the policy;

SSF - -

88 develop and maintain an adapted management information system (MIS), in order to collect and organize baseline and progress data on interventions, beneficiaries’ and service providers’ performance;

SSF - -

89 develop and communicate guidelines for performance information recording and management;

SSF - -

90 undertake periodic qualitative monitoring of beneficiaries, in order to examine project processes and problems;

SSF - -

91 undertake periodic enterprise and firm-level surveys from a sample of beneficiaries, in order to help establish enterprise-level benefits from the project; and

AED - -

92 undertake qualitative assessments of the impact of the policy on people living in the focus areas.

SSF - -

2 368283 8 212 093

Summary of number of posts per job level per chief directorate:

42

Determination of what is needed to establish & maintain these structures

The implementation of co-management is time consuming and requires financial investment during the

planning stages where local organisations need to be developed and empowered. As indicated the

establishment of co-management committees will be rolled out in three stages: planning and development,

implementation, and monitoring and evaluation.

Planning and development

Empowerment

In the planning and development stage of the co-management process, facilitation is integral. Ideally,

facilitation should be the responsibility of an external agent who can mediate the relationship between

43

government, resource users and other stakeholders to negotiate plans and agreements and reach

compromises that are regarded as objective and fair by all stakeholders. A good facilitator is open-minded,

creative, respectful of stakeholders, and respected by them, sensitive to local culture and gender, have a sense

of humour, modest, able to guide rather than lead the process, familiar with community organising and

participation processes, strong in social skills (to establish rapport) and communication skills, and has conflict

management skills.

The co-management process should start with the empowerment of both government officials and fishers, as

the historical relationship between the two groups have traditionally been on opposite sides which have been

characterised by conflict. Change management process is part of the empowerment process, and it includes

information sharing to the whole fisher community about what co-management is, the existing models of co-

management, the model perceived as best serving the needs of the South African context, and agreement on a

model to be used.

Determining feasibility of co-management

Although the policy advocates co-management, it is essential to determine the feasibility of establishing co-

management, after information sharing sessions on the concept of co-management. The feasibility of already

existing relationships between fishers and the Department need to be assessed to evaluate whether they

allow for formalisation to co-management structures or whether existing co-management structures e.g. the

KZN one with Ezemvelo KZN Wildlife can be replicated to other communities. The feasibility study does not

have to be complex, but will be very important to map risk and mitigation strategies during the

implementation stage. The following questions can be used to determine feasibility:

• Are there adequate human, financial and biological resources?

• Do stakeholder interests overlap sufficiently to find common ground?

• Is access to/use of resources essential for food, security and livelihoods?

• Have previous or current management approaches failed to address problems?

• Are resource users willing to work collaboratively with government?

• Is government willing to commit to a co-management process?

• Do the partners have a direct incentive to participate in the process?

The results of the feasibility analysis have to be presented to all stakeholders, and their implications for

establishment of co-management reflected on to establish the feasibility of co-management. The feasibility

undertaking will also provide useful baseline data for monitoring and evaluation of the co-management

structures.

Developing an action plan

When the Co-management Committees are in place, the Management Committee should provide guidance on

how to develop action plans which map out how co-management will be implemented, list the tasks that need

to be undertaken and assign responsibility for each task, set the timeframes for implementation and highlight

what the resource implications are.

Implementation

Participatory research

When Co-management Committees have been formed, baseline information useful for M&E can be collected

using participatory research methods involving resource users, management agencies, and researchers in the

collection and analysis of data and validation of the results. Participatory research will enable a greater

understanding of the people and natural resources in the area and provide information that will be used in

preparing and developing management plans and strategies. The focus areas of the participatory research

should be: resource and ecological assessment; socio-economic assessment which provides information on

44

social, demographic, cultural and economic characteristics of resource users and the community; and legal,

policy and institutional assessment providing information on the institutional arrangements (formal and

informal rights and rules), organisational arrangements, legislation and policies for resource management.

Participatory research raises awareness amongst community members about their community and its natural

resources, and provides useful information that can be used for formulating solutions to challenges. Because

the research approach includes the collection of traditional and/or indigenous knowledge, this knowledge will

be incorporated in planning and decision making, and will be used to augment scientific research. Results of

the participatory research will need to be presented to stakeholders including the communities in ways that

are accessible enough for them to understand the results.

Training and capacity building

As a fairly new concept, government and resource users may not be clear about the intricacies of the process,

and capacity building of regional and local co-management committees, government management structures,

users, and government stakeholders is required.

In order to be effective in carrying out their duties as a Co-management Committee, the team needs to be

capacitated, and training is one of the ways in which capacity can be strengthened. An important first step

towards training is a skills audit and needs assessment to evaluate what skills are available and which need to

be enhanced. Any training intervention would then have to be based on the needed skills. A good way to

facilitate training is to make use of already existing training programmes by NGOs and universities who have

been working in the small scale fisheries sector. The training required for the regional and local co-

management committees and other resource users includes:

• Concepts and principles of sustainable use;

• Principles of resource management;

• Principles, objectives, benefits and methods of co-management;

• Participatory research methods;

• Resource monitoring;

• Policies and laws relevant to resources being harvested;

• Livelihood options and enhancement;

• Organisational development;

• Business development;

• Life skills;

• Conflict management.

Training for government officials and the Departmental Co-management Committee should focus on:

• Participatory approaches to management;

• Participatory research methods;

• Conflict management;

• Appreciating the value and role of indigenous knowledge;

• Making sense of traditional structures and systems;

• Change management (coping with change and restructuring);

• Principles of community development;

• Principles, objectives, benefits and methods of co-management;

• Policies and laws relevant to coastal resource users;

• Resource monitoring;

• Concepts and principles of sustainable use;

• Principles of resource management.

45

Various training methods can be used for the training. It can be useful to make use of the Co-management

Committee to assist with various aspects of the training as this promotes relationship building and creates a

sense of respect for the Co-management Committee by the fishers. This methodology will work well if the Co-

management Committee is trained prior to the fishers.

Principles of adult education need to inform training, and the most effective way to learn for most adults is

through concretisation, so experiential learning or learning by doing, including exchange visits, role playing and

involvement in a resource monitoring exercise, and interactive methods like small group discussions on case

studies, can be more effective than expository methods of training.

Developing the co-management plan

A co-management plan identifies roles, responsibilities, rule-making procedures, and institutes conflict

management mechanisms. In the setting up of responsibilities, it may be useful to put in place different

working groups to focus on specific tasks. The following are some of the critical aspects to be addressed in a

co-management plan:

• Stakeholders should be clearly distinguished according to their priority level, with the key levels being

primary and other stakeholder. Activities, responsibilities and implementation timeframes should also

be explicitly articulated. Activities to consider include research activities, compiling bona fide lists of

fishers in the community, determining harvesting and marketing regulations, enforcement and

monitoring;

• The boundaries of the co-management plan should be clearly specified, and these include resource

boundaries that identify the management area, and social boundaries which clearly define the

community, households or individuals likely to participate in the co-management initiative who will

be beneficiaries of the process;

• There should be a clear communication strategy specifying how information will be shared within,

between, and among organisations (government, resource users and co-management committee)

and the broader stakeholder community. The strategy may include a specified number of public

meetings a year, or communication through community radio and a newsletter or bulletin;

• A conflict management strategy needs to be put in place, highlighting how misunderstandings and

conflict will be managed, and whether an advisory body should be put in place for conflict resolution.

Mediation, conciliation and arbitration are some of the strategies used for dispute settlement and the

method used depends on the level at which the conflict is taking place;

• Accountability structures need to be put in place;

• A monitoring and evaluation framework needs to be agreed and put in place;

• A capacity building programme has to be put in place which is reviewed and updated as necessary;

• Alternative livelihoods ideas that can help in managing the resource or adding value to the resource;

• Risk identification and management plan.

Upon finalisation of the co-management plan, a meeting to share it with stakeholders and get their buy in is

required.

46

12. REVIEW, MONITORING AND EVALUATION

Brief description of who is responsible for this

Short explanation of how review, monitoring and evaluation will be done

Specify how regularly review, monitoring and evaluation of the implementation plan will be done

13. FINANCIAL IMPLICATIONS SUMMARY

This section provides an overview of the main cost drivers and of DAFF funding requirements for implementation. It distinguishes between set up costs (initial implementation) and recurrent costs associated with maintenance of policy implementation. The summary of resource, goods and services, capital item and contingency costs per year for the five year costing period is reflected in the table and graph below:



47

In the next table and graph the costs per reporting category for year 1 are summarised. This table reflects the costs in respect of resources, goods and services, capital items and contingencies across each of the chief directorates.

The table and graph on the following page reflects the resources, goods and services, capital item and contingency costs allocated to each function to be performed in implementing the policy. The costing breakdown is appended

48

49

Overview of funding requirements in the coastal provinces (differentiated according to Province) – this will distinguish between set up costs (initial implementation) and recurrent costs associated with maintenance of policy implementation

14. OVERVIEW OF CRITICAL SUCCESS FACTORS AND RETURN ON INVESTMENT

Identify what are the critical things (actions, deliverables and human resources and the costs associated with these) that are needed to make the implementation plan a reality at national level

Identify what are the critical things needed to make the implementation plan a reality in the coastal provinces

Outline the non-financial return on investment (ROI) of policy implementation (eg local economic development, community development, alternative livelihoods and employment opportunities, skills transfer and development, co-management of resource base etc)


50

15. ACTIVITY BREAKDOWN SCHEDULE

The activity breakdown schedule is the action plan and provides a breakdown of what must be done, how, when, by whom and with what resources action plan. It follows the logic of priorities that are identified in implementation road map. The information captured in the activity breakdown schedule refers only to those activities and steps to be implemented by officials and excludes steps to be undertaken by external stakeholders such as small-scale fishers, small-scale fishing communities, community-based legal entities, associations etc


Value addition and development

Managing the small-scale fisheries rights application and allocation process

Research

Compliance monitoring, surveillance and enforcement


Capacity building, extension and technical support for small-scale fishing

communities




51

15.1 Value addition and development

HUMAN RESOURCES REQUIRED

WHO (PARTICIPANTS)

WHO (RESPONSIBLE INSTITUTION

& SPHERE)

WHEN (START &

END)

HOW MUST THIS BE DONE WHAT MUST BE DONE

D:SSF D:SED

Provide & maintain transport, waste management & cold chain storage facilities

Develop fishing harbours and other landing sites to ensure equitable access to marine resources to promote local economic development

Invest in processing and marketing infrastructure in productive areas

D:SSF NRCS Implement Health & Food Safety standards Quality Assurance

D:RR CD:MRM

Identify new species New product development

D:SED

Develop relevant marketing strategies for fisheries zones

Identify & develop area and fishery economic development zones with purpose specific development programmes in each zone

Marketing & local economic development

Dealt with under capacity building & technical support services

SSF label/fair trade certification

D:SSF

D:SED

Secure funding from programmes such as IPAP, CASP, SCL, WfF, & external sources such as WWF & private sector to implement small-scale fisheries projects

Identify projects & opportunities that promote tourism, arts, crafts, restaurants, accommodation

Promote job creation

D:ATS Promote aquaculture development within the small-scale fisheries sector (building on priorities identified in the Aquaculture Strategy)

CD:AED & DTI Investigate the feasibility of establishing a Fisheries Development Bank with low interests loans(& other development finance schemes) for small-scale fisheries

Development finance & beneficiation

DTI D:SED & D:SSF Develop internal policy on the subsidisation of

52


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


fishing gear, vessels, facilities, operational costs, and other activities

Determine criteria & procedures for applying for these subsidies & communicate this to the SSFCs

D:SSF CD:AED Develop a strategy on fishery processing & beneficiation that is specifically aimed at the small-scale fisheries sector (aligned with existing strategies such as Aquaculture, IPAP)

15.2 Manage Small-Scale Fisheries Rights Application and Allocation process


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


small-scale fishers & small-scale fishing

communities

D:SSF

Generic baseline information dissemination & gathering

Capture & collate information Establish database & system for administering

applications to the Minister for recognition as SSFC Establish database & system for administering

applications for fishing right allocation Establish database & system for administering

appeals against the granting/refusing of fight right allocations

Establish system for referring disputes for mediation

Develop standard operating procedures for the administration of applications for recognition as

Putting systems & baselines in place

53


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


SSFC, fishing right allocations and appeals

small-scale fishers & small-scale fishing

communities

D:SSF

Conduct series of regional & local road shows, workshops & information sharing campaigns on: o criteria & thresholds for identifying SSFCs o rights application & allocation process o basket of species o implications of SSFP for current right holders o options for establishing CBLEs & the benefits &

disadvantages of the different types of legal entities

o procedure for objecting to the list of names of small-scale fisheries

o procedure for appealing against fishing right allocations

Bilateral consultations with SSFCs on issues affecting them

Information sharing & awareness raising

D:SSF

D:SSF

Minister D:SFF

Decide on verification system Initiate process to outsource verification process &

appoint an independent service provider Develop application form Distribute application form to SSFCs Capture completed submitted application forms in

database Review applications for recognition as SSFC Consider applications for recognition as SSFC Publish recognition of SSF community and specify

extent of community Consult small-scale fisheries sector expert

reference group to identify thresholds for meeting the criteria

Advertise “call for names” of small-scale fishers to be included in CBLEs

Recognition & verification of SSFs & SSFCs (includes compilation of provisional list of small-scale fishers to be included in CBLE and verification of list of SSF for CBLE)

54


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


Independent service provider

Independent service provider

D:FLS

D:SSF

DDG:FM

Minister D:SSF

Sort & capture information in database Compile provisional list of small-scale fishers to

provide complete record of all names submitted by small-scale fishers

Verify names of small-scale fishers & identify small-scale fishers which do not meet the criteria

Produce list of small-scale fishers that meet the verification criteria as well as those who are excluded

Publish list of small-scale fishers for scrutiny & comment

Capture objections received & compare against verification criteria & thresholds

Prepare report on validity of objections & make recommendations to the Minister to amend the list of small-scale fishers

Refer objections for mediation if necessary/ specifically requested

Consider the objections received & finalise the list Publish final list of the names of small-scale fishers

55


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


DTI

small-scale fishing communities

DTI

CD:MCM D:SSF & DTI

D:SSF

Develop a protocol / MOU with the DTI on the implementation of DTI’s Co-operatives’ incentive programme to ensure there is alignment between this programme & the SSFP objectives

Investigate the feasibility of developing a separate category for small-scale fisheries under the Co-operatives Act

Develop a user-friendly guide for SSFCs on the benefits & disadvantages of different types of legal entities

Develop a user-friendly guide for SSFCs on establishing, registering & managing a CBLE

Develop a generic business plan & costing model for CBLEs

Develop & implement a roll-out plan for assisting SSFCs in the rural areas of the Eastern Cape &Kwa-Zulu Natal with the establishment of CBLEs

Consolidate existing co-operatives established by DTI in the Western & Northern Cape & convert these into secondary co-operatives

Provide technical assistance & advice to SSFCs on the establishment of CBLEs – including assistance with drafting founding documents & completing registration forms

Establishment of CBLEs (includes CBLE compiles list of eligible fishers and applies for SSF rights)

D:SFF

Ensure delegations are in place to grant/refuse right allocations

Develop a declaration form (‘service level agreement’) to capture the name of the CBLE, number of eligible small-scale fishers, name of the vessel to be utilized, details of the appointed FPE and Marketer/buyer and any other information that will need to be used to measure the CBLE’s

Review & granting / refusing of fishing rights

56


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


Delegated

official D:SSF

performance after every season11

Determine the process & criteria for sorting

applications for rights allocation from CBLEs Capture applications for fishing right allocations in

the database Review applications for rights allocation & prepare

recommendations for granting/refusing the application and conditions of the allocation

Make decision regarding the granting/refusing of a fishing right & the conditions of the right if granted

Inform the CBLE of the decision to grant/refuse a fishing right, and if a right has been granted of the quantum allocated to the CBLE & the conditions of the allocation

D:SFF

Marine Living Resources

Review Board

Initiate process to establish appeal review board Develop guide on the appeal procedure Capture appeals received against fishing right

allocations in the database Collate appeal information & prepare report on

the appeal grounds Consider the appeal & make decision Inform appellant/s of the decision on the appeal

Appeals

11 Information provided by Abongile – suggestions on issuing rights to small-scale fisheries

57

15.3 Research and scientific advice


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


D:RR Undertake regular scientific monitoring of landings (catch, effort and biological data)

Scientific monitoring

D:RR Additional data capture and analysis

D:RR Comprehensive assessment of status of resource/s;

Stock & species assessment

D:RR improved assessments through fishery independent research surveys, modelling, biological research

D:SSF

CD:FRM

Expand research capacity within the chief directorate to include IKS and socio-economic research skills and programmes

Establish mechanism to gather indigenous knowledge for SSFC and other stakeholders and incorporate this into research

Research

D:SSF

CD:FRM & D:SSF

Identify external social & economic research programmes that could contribute to the implementation of the SSFP

Establish partnerships with institutions that do social & economic research to support the SSFP

D:RR Provide scientific input & advice to the Chief Directorate Marine Resource Management on technical control measures

Scientific advice

58

15.4 Compliance monitoring, surveillance & enforcement


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)

HOW MUST THIS BE DONE (STEPS/TASKS) WHAT MUST BE DONE (ACTIVITY)

D:C Monitor catches’ compliance with conditions Capture information in monitoring database

Compliance monitoring

D:C Control & surveillance activities (including inspections)

Control & surveillance

D:C Collect data of own operations

D:C Follow -up on court rulings

D:SSF D:C Establish, develop & maintain community compliance structures

Honorary Community Fishing Inspectors

D:C D:SSF Define & clarify the role that SSFC’s will play in compliance as part of the co-management model & communicate this to co-management structures

Co-management of compliance

D:C D:SSF Develop guidelines on how co-management structures should monitor and enforce TAC/TAE allocated to CBLEs

15. 5 Resource management and co-management


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


CBLEs

D:SSF

Develop procedures for the identification and demarcation of SSFC areas

Receive & review applications from CBLEs to designate as SSFC area

Consult other organs of state to determine

Demarcation of SSFC areas

59


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


whether or not there any restrictions on the areas Consult other relevant stakeholders Issue notice of demarcated SSFC areas

D:SSF

Determine the content & information requirements for management plans

Develop a management plan template Develop the procedure for the compilation &

adoption of management plans Draft & publish Regulations on the purpose,

content, information requirements & procedures for developing & adopting management plans

Develop a guideline of the compilation & implementation of management plans

Initiate the process of compiling management plans (including consultation with interested & affected parties)

Review management plans for adoption Adopt management plans Coordinate the implementation of management

plans through the co-management structures

Management plans

D:FLS

D:SSF

Determine the content requirements for co-management agreements

Develop a template for co-management agreements negotiation of co-management agreements

Develop the procedure for negotiating & adopting co-management agreements

Initiate the process of negotiating & adopting co-management agreements with SSFCs & CBLEs

Coordinate the implementation of co-management agreements through the co-management structures

Co-management agreements

60


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


accredited independent

mediators

D:SFF

Provide dispute resolution training for D:SSF staff & co-management structures accredited independent mediators

Administer disputes to be referred to mediation by accredited independent mediators

Conflict resolution

D:SFF Establish & maintain the administration of fishing right permits

Administration of fishing right permits

15.6 Institutional arrangements


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


CD:MRM

D:SSF

Determine the ToRs for the CAF sub-committee for the small-scale fisheries sector

Initiate the process calling for nominations to serve on CAF & its sub-committee for the small-scale fisheries sector

Provide secretarial services for the CAF sub-committee for the small-scale fisheries sector

Co-ordinating structures

D:SSF

Determine the ToRs for the Departmental Small-scale Fisheries Management Working Group

Establish & provide secretarial services for Departmental Small-scale Fisheries Management Working Group

Representatives of affected organs of

state & regional

D:SFF

Determine the ToRs for the Departmental small-scale fisheries co-management committee

Initiate the process calling for nominations to serve

Co-management committees

61


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


small-scale fisheries co-management

committees

on Departmental small-scale fisheries co-management committee

Provide secretarial services for the Departmental small-scale fisheries co-management committee

Representatives of local small-scale

fisheries co-management committees

D:SFF

Determine the ToRs for the regional small-scale fisheries co-management committees

Initiate the process calling for nominations to serve on regional small-scale fisheries co-management committees

Provide secretarial services for regional small-scale fisheries co-management committees

Representatives of SSFCs & CBLEs

D:SFF

Finalise the process of establishing local small-scale fisheries co-management committees

Provide secretarial services for the local small-scale fisheries co-management committees

DTI Provincial

development agencies

IDZs LED Managers in

municipalities

Establish & maintain fisher-support hubs (to provide extension services, assistance with permit applications, access to information about fish movements, weather, market prices )

Fisher-support hubs

62

15.7 Capacity building and technical extension support to SSFCs


WHO (PARTICIPANTS)

WHO (RESPONSIBLE INSTITUTION &

SPHERE)

WHEN (START &

END)


D:SMALL-SCALE FISHERIES

D:SSF

D:C

D:IHRM

CD:MRM

D:SSF

Conduction organisation & development study into the establishment & provision of dedicated extension & technical support services for small-scale fishing communities

Establish extension & technical support services within the Directorate

Provide on-going extension & technical support services to SSFCs

Provide on-going guidance to local& regional co-management committees on the monitoring & enforcement of TAC/TAE allocated to CBLEs

Provide on-going guidance to CBLEs on keeping community catch records & analysing catch reports

Extension & technical support services

DTI COGTA SAMSA

DOL FET Colleges

WWF Independent service

provider


Develop training programmes for SSFCs on: o processing, storing, packaging, marketing,

transporting and exporting of fish o basic business skills o strategic planning o participating in strategic planning processes

such as provincial growth & development strategy & IDP processes

o marketing & branding o optimising value addition o tourism o managing & running a CBLE o preparation & implementation of management

plans o conflict resolution

Training for SSFCs

63


WHO (PARTICIPANTS)

WHO (RESPONSIBLE INSTITUTION &

SPHERE)

WHEN (START &

END)


o recording, monitoring & verifying catches o identification of important species o participation in, and effective functioning, of

co-management structures o safety @ sea o basic conditions of employment & staff

wellness Provide training Monitor training outcomes

D:RR WWF NGOs


Develop awareness raising & advocacy programmes to empower SSFCs & CBLEs manage and use marine living resources sustainably & responsibly in their areas

Implement the awareness raising & advocacy programmes

Monitor awareness raising & advocacy outcomes

Awareness raising & advocacy

Develop user-friendly guidelines & manuals on: o basic business management o how to run meetings o marketing o quality assurance & certification o processing & beneficiation o safety @ sea and minimum safety standards

Guideline development

D:SSF D:Communication Develop & implement Communication Strategy Communication

D:SSF D:SE Facilitate stakeholder engagement

D:RR D:SMALL-SCALE FISHERIES

Provide access to research findings and information on climate, the movement of fish, appropriate technology, permits, stock assessments etc.

Information sharing

64

15.8 Social security & disaster relief


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)



Department of Social Services

COGTA

Initiate the process to ensure SSFs are catered for in the social security net & disaster relief framework within government

Facilitate social security & disaster relief services to SSFCs

D:SSF Provide assistance to SSFs to submit claims to apply for social security & disaster relief


COGTA Investigate and establish mechanisms to ensure provision is made for SSFC to access to disaster relief funding assistance


DOT Investigate and discuss SSFs’ access to the Road Accident Fund, or some similar instrument

15.9 Safety at sea & labour rights


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)



DOL SAMSA

Investigate the feasibility of establishing basic conditions of employment, including occupational safety at sea standards and conditions, for the small-scale fishers

Facilitate safety @ sea & labour rights for small-scale fishers


SAMSA

Develop and enforce appropriate minimum safety standards

65

15.10 Monitoring & evaluating policy implementation


WHO (PARTICIPANTS)


& SPHERE)

WHEN (START &

END)


D:SSF CD:MRM Develop and maintain a M&E system to measure the performance and effectiveness of the policy

Monitoring & evaluation

D:SSF Develop and maintain a management information system (MIS) to collect and organize baseline and progress data on interventions, beneficiaries’ and service providers’ performance;

D:SSF Develop and communicate key performance indicators for monitoring & measuring performance with the achievement of policy objectives

D:SSF Undertake periodic qualitative monitoring of beneficiaries, in order to examine project processes and problems;

D:SSF D:SED Undertake periodic enterprise-level surveys from a sample of beneficiaries to establish enterprise-level benefits from projects

D:SSF D:SED Undertake qualitative assessments of the impact of the policy on people living in the focus areas.

D:SSF Compile regular management reports on performance and policy implementation

Reporting

All line managers

D:SSF

Include specific SSFP targets, outputs and performance standards in managers performance contracts and Directorate’s Annual Performance Plans

Revise and tightening job descriptions and KPA and KRAs of staff in the Directorate: Small-scale Fisheries

Performance monitoring

66

APPENDICES

Breakdown of financial implications (summary cost)

Documents

Final Implementation Plan