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VOLUME 1

Tracking the Implementation of an Ecosystem Approach to Fisheries

in Southern Africa

WWF South Africa Report Series – 2010/Marine/001

This report and supporting work was funded by the Harker Bequest and the Charl van der Merwe Trust.

Compiled and edited by: Dr Samantha Petersen 1, Dr Barbara Paterson 2, Janine Basson 3, Nadine Moroff 4,

Dr Jean-Paul Roux 5, Dr Johann Augustyn 6 and Graça D’Almeida 7

1 The Sustainable Fisheries Programme, WWF South Africa, Unit 19 Foregate Square, Corner Heerengracht and Table Bay Blvd., Cape Town, South Africa.

Email: [email protected]

2 Marine Research Institute, Zoology Department, University of Cape Town, Private Bag X3, Rondebosch, 7701, Cape Town, South Africa.


3 The Sustainable Fisheries Programme, WWF South Africa, Unit 19 Foregate Square, Corner Heerengracht and Table Bay Blvd., Cape Town, South Africa.


4 Ministry of Fisheries and Marine Resources. National Marine Information and Research Centre, Swakopmund, Namibia.


5 Ministry of Fisheries and Marine Resources Lüderitz Research Centre.


6 Chief Director: Research, Antarctica & Islands Department of Environmental Affairs and Tourism Marine and Coastal Management Private Bag X2, Rogge Bay 8012 South Africa.


7 Deputy Director, Applied Research, Ministry of Fisheries and Marine Resources, Namibia. Email: [email protected]

APRIL 2010

mailto:[email protected]�

Petersen SL, Paterson B, Basson J, Moroff N, Roux J-P, Augustyn J and G D’Almeida (eds) 2010.

Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

T r a c k i n g t h e I m p l em e n t at i o n o f a n E c o s y s t e m A p pr o a c h t o F i s h e r i e s i n S o u t h e r n A f r i c a

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FOREWORD Johann Augustyn (Chief Director: Fisheries Research, Department of Agriculture, Forestry and Fisheries, South Africa) This series of Ecological Risk Assessment (ERA) reports represents a further important milestone in the development of an ecosystem approach to fisheries management (EAF) in southern Africa. Although South Africa committed itself to such an ecosystem-based approach formally in the Johannesburg Plan of Implementation, a key outcome of the 2002 World Summit for Sustainable Development, ecosystem-based thinking had been developing in fisheries science and management as far back as the early 1980s, when the then Sea Fisheries Research Institute (SFRI), University of Cape Town (UCT), South African Museum, Council for Scientific and Industrial Research (CSIR) and other partners established the Benguela Ecology Programme (BEP). The BEP was a multi-disciplinary, ecosystem-based programme that carried on into the late 1990s and placed South Africa well and truly at the forefront of international marine science and, effectively, integrated fisheries and environmental research. This legacy was carried forward into regional programmes, such as the Benguela Environment Fisheries Interaction and Training (BENEFIT) programme and the Benguela Current Large Marine Ecosystem (BCLME) programme; the latter programme supported an important project looking at the feasibility of introducing EAF into national and regional fisheries management practices. In effect though, South Africa was already translating ecosystem issues into permit conditions in individual fisheries and was far advanced in understanding and managing top predator populations. These traditions were strengthened through conducting ERAs that formally brought many issues, particularly the human dimension of fisheries management, to the fore, allowing them to be properly addressed if not always fully implemented. This was strongly supported by organisations like the Food and Agricultural Organisation of the United Nations (FAO) and WWF South Africa, financially as well as logistically. Today, EAF remains a central tenet of the newly established Benguela Current Commission (BCC), Agulhas-Somali Current Large Marine Ecosystem (ASCLME) programme and the South West Indian Ocean Fisheries Programme (SWIOFP). At the same time, there is continued strong support from the FAO via the EAF Nansen project, which has a major involvement with and commitment to all these programmes. There is also an important EAF “think-tank” based at UCT within the Marine Research (MA-RE) Institute, and all the national governments involved have at least some interest in and support for EAF initiatives. Much, however, remains to be done in southern Africa as well as elsewhere, and what has already been done needs to be reviewed in order to stay current and relevant. The ERAs included in this report series, and that will lead to further more effective implementation of an EAF, are again the result of a collaborative effort that follows the long-standing tradition of multi-disciplinary excellence in southern African marine science.


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FOREWORD Graça Bauleth D’Almeida (Deputy Director, Applied Research, Ministry of Fisheries and Marine Resources, Namibia) The coastal states of the Benguela Current Large Marine Ecosystem (BCLME) recognize the significance of implementing an Ecosystem Approach to Fisheries (EAF) in the management strategies to ensure sustainable utilization and conservation of the marine resources. In Namibia, the process towards integration of an EAF in the management strategy started in 2005 with the target resources oriented management (TROM) reviews of the major fisheries, namely hake, horse mackerel, sardine, deep-sea red crab and rock lobsters. The TROMs were followed by a series of Ecological Risk Assessment (ERA) workshops to identify the ecological issues and determine the risks associated with the management of hake, horse mackerel and sardine, for which management action was needed. Amongst the identified issues relating to the governance of these resources was the absence of approved management plans and need to rebuild the depleted sardine resource. Furthermore, of great concern was the lack of consideration for top predators (e.g. seabirds) and bycatch species in the current management practices. Given that a change in management strategy may incur additional resources, a detailed analysis of the cost and benefits (CBA) of an EAF was made in 2006. The CBA indicated that the long term benefits of implementing and EAF would override the costs involved. In 2008 and 2009, review workshops were held to monitor the progress of hake and then sardine and midwater fisheries, which form the basis of this report. The reviews focused on ten generic objectives, and helped the stakeholders to re-asses the prioritized issues. Whilst some progress has been made in filling the identified gaps in research towards understand the effects of fisheries on the ecosystem, non-target and vulnerable species, the need still remains to integrate the available information in the decision process. Biological reference points and management targets for non-target and vulnerable species are yet to be defined and incorporated into the management plans to attain a balanced management regime. Also emanating from the reviews is the requirement for training on EAF principles to ensure that all role players in the sector understand its meaning. The World Summit on Sustainable Development (WSSD) target date of 2010 has dawned on us and with only a few months left can we claim that we will meet the expectations that were set? What can be said is that, thanks to GEF sponsorship, FAO guidance and the involvement of WWF South Africa, the way forward has now been paved. The structures for EAF implementation and the commitment by stakeholders are in place. However, though much has been achieved there is a need to increase the pace in order to completely realize the WSSD goals. In a country where the fishing sector forms a significant contribution to the economy, socio-economic needs continues to outweigh the general ecosystem demands and may pose a challenge to the implementation of an EAF in its entirety if equilibrium is not found. Short term economic sacrifices will have to be made to attain the longer term benefits derived from adopting and ecosystem wide approach.


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CONTENTS Pg

VOLUME 1 1. INTRODUCTION 1

2. METHODS 5 2.1 ECOLOGICAL RISK ASSESSMENT METHOD 5 2.2 ECOLOGICAL RISK ASSESSMENT REVIEW METHOD 8

3. SYNTHESIS AND RECOMMENDATIONS 43

4. WORKSHOP REPORTS 76 4.1 ECOLOGICAL RISK ASSESSMENT REPORTS 76 4.2 ECOLOGICAL RISK ASSESSMENT REVIEW REPORTS (VOLUME 2) 164 ECOLOGICAL RISK ASSESSMENT REPORTS Compiled by Pg. No. 1 Ecological Risk Assessment for the South African

Linefishery Samantha Petersen, Sven Kerwath, Barbara Paterson and Nicola Okes

77

2 Ecological Risk Assessment for the Namibian Rock Lobster Fishery

Janine Basson 134

VOLUME 2 ECOLOGICAL RISK ASSESSMENT REVIEW REPORTS

Compiled by Pg. No.

1 Ecological Risk Assessment Review for the South African Hake Fishery

Samantha Petersen, Saasa Pheeha, Barbara Paterson and Nicola Okes

165

2 Ecological Risk Assessment Review for the South African Small Pelagic Fishery

Samantha Petersen, Nicola Okes, Janine Basson, Barbara Paterson and Johan de Goede

204

3 Ecological Risk Assessment Review for the South African West Coast Rock Lobster Fishery

Samantha Petersen, Nicola Okes, Janine Basson, Barbara Paterson and Andy Cockcroft

251

4 Ecological Risk Assessment Review for the Namibian Hake Fishery

Barbara Paterson, Samantha Petersen, Nicola Okes and Paul Kainge

303

5 Ecological Risk Assessment Review for the Namibian Small Pelagic Fishery

Nadine Moroff, Barbara Paterson, Samantha Petersen and Uatjavi Uanivi

332

6 Ecological Risk Assessment Review for the Namibian Midwater Trawl Fishery

Uatjavi Uanivi, Nadine Moroff, Samantha Petersen and Barbara Paterson

380


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ABBREVIATIONS TABLE ABBREVIATION EXPLANATION BCC Benguela Current Commission BENEFIT Benguela Environment Fisheries Training Interactions Programme BMSY Biomass Maximum Sustainable Yield BRD Bycatch Reduction Device CAF Consultative Advisory Forum CCAMLR Commission for the Conservation of Antarctic Marine Living Resources CCSBT Commission for the Conservation of Southern Bluefin Tuna CPUE Catch Per Unit Effort DAFF Department of Agriculture, Forestry and Fisheries, Branch: Fisheries DEAT Department of Environment and Tourism DME Department of Minerals and Energy DO Directorate of Operations DRM Directorate of Resource Management DTI Department of Trade and Industry DWAF Department of Water Affairs and Forestry EAF Ecosystem Approach to Fisheries EEZ Exclusive Economic Zone ERA Ecological Risk Assessment FAD Fish Aggregating Devices FAO Food and Agricultural Organisation FCO Fisheries Compliance Officer FIMS Fisheries Information Management System FOA Fisheries Observer Agency HACCP Hazard Analysis and Critical Control Points ICCAT International Commission for the Conservation of Atlantic Tunas IOTC Indian Ocean Tuna Commission IUU Illegal, Unreported and Unregulated MCM Marine and Coastal Management MFMR Namibian Ministry of Fisheries and Marine Resources MLRA Marine Living Resource Act MPA Marine Protected Areas MSC Marine Stewardship Council NGO Non-governmental Organisation OMP Operational Management Procedure PPE Policy, Planning and Economics RFMO Regional Fisheries Management Organisation RMWG Resource Management Working Group SABS South African Bureau of Standards SADSTIA South African Deep Sea Trawl Industry Association SAMSA South African Maritime Safety Authority SEAFO South East Atlantic Fisheries Organisation SVU Standard Vessel Unit SWG Scientific Working Group SWIOFP South West Indian Ocean Fisheries Project TAC Total Allowable Catch TAE Total Allowable Effort TOR Terms Of Reference TROM Target Resource Oriented Management VMS Vessel Monitoring System WSSD World Summit on Sustainable Development WTO World Trade Organisation


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4.2 ECOLOGICAL RISK ASSESSMENT REVIEW REPORTS (VOLUME 2)

ECOLOGICAL RISK ASSESSMENT REVIEW REPORTS

Compiled by Pg. No.

1 Ecological Risk Assessment Review for the South African Hake Fishery

Samantha Petersen, Saasa Pheeha, Barbara Paterson and Nicola Okes

165

2 Ecological Risk Assessment Review for the South African Small Pelagic Fishery

Samantha Petersen, Nicola Okes, Janine Basson, Barbara Paterson and Johan de Goede

204

3 Ecological Risk Assessment Review for the South African West Coast Rock Lobster Fishery

Samantha Petersen, Nicola Okes, Janine Basson, Barbara Paterson and Andy Cockcroft

251

4 Ecological Risk Assessment Review for the Namibian Hake Fishery

Barbara Paterson, Samantha Petersen, Nicola Okes and Paul Kainge

303

5 Ecological Risk Assessment Review for the Namibian Small Pelagic Fishery

Nadine Moroff, Barbara Paterson, Samantha Petersen and Uatjavi Uanivi

332

6 Ecological Risk Assessment Review for the Namibian Midwater Trawl Fishery

Uatjavi Uanivi, Nadine Moroff, Samantha Petersen and Barbara Paterson

380


Citation: Petersen SL, Pheeha S, Paterson B and N Okes. 2010. Ecological Risk Assessment Review for the South African Hake Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

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Ecological Risk Assessment Review for the South African Hake Fishery

Compiled by Samantha Petersen, Saasa Pheeha, Barbara Paterson and Nicola Okes

1. Introduction

This fishery consists of various sectors i.e. inshore trawl, offshore trawl, longline and handline. It targets both species of hake, namely shallow water Cape hake Merluccius capensis and deep water Cape hake M. paradoxus. The market value of the landed catch as of 2008 was approximately R2.5 billion. The inshore trawl fishery commenced in the late 19th Century. The fishery targets the South Coast M. capensis stock. The fleet is split between hake-directed (with a sole bycatch) and sole Austroglossus capensis directed (with a hake bycatch). The market value of catch landed as of 2008 was approximately R151 million. The demersal hake longline fishery commenced with an experimental phase from 1994 to 1997 with the introduction of full commercial fishing from 1998. The total value of fish landed in the hake longline fishery for 2008 was approximately R199 million. The hake handline fishery, estimated at R7.7 million for 2008, originated in 1990 as an expansion of the linefish fishery (a handline fishery using small boats). This fishery, like the hake longline fishery, lands prime quality hake for export to Europe. The Ecological Risk Assessment (ERA) workshop for the South African hake fishery took place in Cape Town, South Africa, from the 30th of May to the 3rd of June 2005. A total of 96 issues were identified for this fishery by workshop participants, of which 67 (69%) were rated as being of ‘Moderate’ risk or higher. 44% of issues identified fell under the ‘Ecological Wellbeing’ component; the impact of fishing on the size structure of the M. capensis (especially the removal of larger size classes) rated as the issue of highest risk to the ecological wellbeing of this fishery, with various issues concerning management under uncertainty deemed as high priority issues. 12% of issues identified fell under the ‘Human Wellbeing’ component, with the lack of baseline social and economic data rated as an ‘Extreme’ risk to the fishery and seen as a basis for many human wellbeing problems. 44% of issues identified fell under the ‘Ability to Achieve’ component and stakeholders expressed great concern for the management of this fishery because of inadequate research and management capacity, as well as the loss of institutional knowledge.


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A workshop to review the ERA took place in Cape Town, South Africa, from the 18th to the 19th of November, 2008 and was hosted by Marine and Coastal Management (MCM), a branch of the Department of Environmental Affairs and Tourism (DEAT), and facilitated by Dr Samantha Petersen and Dr Barbara Paterson of WWF-South Africa. After wide distribution of invitations, the workshop was attended by a total of 31 participants. Most attendees were from MCM, with good representation from industry, industry bodies, fisheries scientist, NGOs and social scientists. This allowed for very healthy debate. Please see Annex 1 for a complete list of attendees. 2. Results

Summary of fishery status and next steps The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in table 1. Group 1 scored progress for all objectives, but limited their discussion to retained bycatch species and requests the reader to refer to the Demersal Scientific Working Group’s (SWG) research plan for details of priority activities identified for Cape Hakes in 2009. Objective 1: The managing authority has a good understanding of the ecosystem impacts of the South African hake fishery including target, non-target and general ecosystem impacts

Details of research and management priorities for both hake species (M. capensis and paradoxus) can be found in the Demersal SWG reports. However, this workshop highlighted that research is not yet sufficient and should focus on improving the understanding of natural mortality, variability in recruitment and age at maturity. It was pointed out that, although each species is currently modelled separately, each is considered one stock that solely exists within South Africa’s borders. Current research of hake diet and the role of hake as a top predator allow for the development of food web models and models which incorporate food web implications exist, but are currently not in use in the hake fishery. Much research is still lacking for retained bycatch species. For instance there is a lack of a stock assessment for monk, snoek and kob and limited understanding of the ageing of monk, kingklip and sole, which was identified as a priority. Since sole is a directed catch for some of the inshore vessels, it was further highlighted that an investigation of the environmental effects on the behaviour of sole be undertaken (e.g. effect of wind on the abundance and availability of sole), which has implications for stock assessment, and that observer data should capture details of bycatch on these vessels. Since 2005, substantial progress has been made to address seabird bycatch particularly in the trawl fishery, where an assessment of seabird bycatch has been conducted and seabird


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mitigation measures have been included in the permit conditions for this fishery. WWF conducted a study to investigate demersal shark bycatch in the longline fishery, but limited information exists to adequately understand shark bycatch in the handline and trawl sectors. Issues requiring further consideration and action include the assessment of linefish bycatch and an investigation of the depredation by seals which results in substantial economic loss, and also affects resource assessment by adding uncertainty to the total mortality. Objective 2: Ecosystem impacts of fisheries are included into management advice

A number of new regulations have come into place since the ERA in 2005 including measures to manage the bycatch of fish species of concern, which incorporates the implementation of precautionary catch limits for kingklip, monk, kob and snoek, a time-area closure limiting fishing during spawning of kingklip, and a ‘move-on’ rule for snoek. The Operational Management Procedure (OMP) is currently under revision and is considering spatial segregation (inshore versus offshore, for Namibia, south coast and west coast). No regulations currently exist to reduce shark bycatch and this was identified as an issue requiring attention. SADSTIA has engaged in a project to map the benthic habitat on the trawl grounds to identify potential closed areas to be considered as an offshore Marine Protected Area. Objective 3: The social wellbeing of dependent fishing communities is accounted for in management advice

Regarding the social wellbeing of broader fishing communities, there is still no good understanding of the issues and the role of the sector in addressing social objectives. However, projects have commenced to collate available information, and to increase collaboration with partners in academia and the NGO sector. Objective 4: The economic wellbeing of the fishing industry is maintained

Discussion revealed that all sectors of the hake industry have good access to international markets. Since 2005 the hake trawl fishery has received MSC certification, although this is currently under re-certification. It was acknowledged that MSC certification has catalysed much of the progress reported in this review. The negative effects of a downturn in the hake fishery on the regional economy and employment in the western and eastern Cape which had been raised as an issue in the 2005 ERA, has still not adequately been addressed. There is currently no clear understanding of the regional economic context of this fishery, and only snapshot data are available.


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Objective 5: The managing authority has transparent and participatory management structures that ensures good communication and information sharing locally and regionally

Substantial progress made since 2005 includes the development of a Resource Management Working Group (RMWG). The RMWG and Scientific working groups are functioning well and key government sectors and industry attend meetings regularly. However there is a need for NGO participation. Effective and cohesive fishery stakeholder associations are also in place for the trawl sub-sectors. The longline and artisinal sectors are organised but not as effectively and no structure is in place for the handline sector. South Africa is now an active member of SEAFO and the Benguela Current Commission (BCC) has been ratified, but not yet operationalised. Objective 6: Management plans incorporate EAF considerations

Progress since 2005 includes the adoption of the NPOA-Seabirds (which includes the hake longline and trawl fishery) and progress towards the development of a NPOA-Capacity has also been made with the implementation of an effort management scheme implemented in 2008. A draft management plan has been developed; however, a standard management plan template should be developed for the hake sector within the next 18 months. Objective 7: Compliance to regulations reduces ecosystem impacts of fisheries

Incentives to implement two of the three EAF dimensions (i.e. Ecological and Human Wellbeing, Governance) are in place and most EAF considerations are appropriately regulated. However, there is still a need for improved enforcement, including the need for stronger legislation, e.g. with regard to bycatch, damage to habitats, gear limitations and closed areas, and where legislation exists insufficient follow through and in some cases inadequate penalties exist. Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

Capacity and funding were highlighted as issues requiring attention. Insufficient resources exist to successfully implement an EAF in the hake fishery and it was noted that the current lack of skills should be addressed as a priority. Workshop discussion centred around two main issues: limited capacity and enforcement of regulations. It was stressed that funding and capacity needs need to focus on skills, not only additional staff. Although 85% of compliance positions are filled and incentives to implement an EAF are in place, there is a need for improved enforcement, including the need for stronger legislation, e.g. with regard to bycatch, damage to habitats, gear limitations and


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closed areas, and, where legislation exists, insufficient follow-through and, in some cases, inadequate penalties exist. Objective 9: Good data procedures exist to support EAF implementation

An industry initiative is the development of the Responsible Fisheries Training programme developed by WWF in partnership with Irvine and Johnson, and Sea Harvest which inter alia aims to improve logbook information and equip fishers with the skills to implement an EAF. However, discussion revealed that the procedures to retrieve logbooks from vessels are neither efficient nor timely. It was further stressed that the existing data management system needs to be improved, and data need to be independently verified. The lack of adequate data management, i.e. verification and validation of data, was highlighted as crucial to management. Therefore there is a need to employ a skilled data base manager. Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc)

No progress has been made in improving the understanding of the impact of other fisheries on hake. Limited research of the effects of climate change on the hake fishery exists, but the potential impacts are poorly understood and further research is required. Participants were unsure which steps have been taken to improve the understanding of the impacts of other industries on the hake fishery. It was noted that communication between relevant government departments needs to be improved. Research needs regarding the impacts of social factors such as HIV/AIDS have been identified and prioritised. Much of this work is done by the industry and there is a good understanding from an individual corporate perspective, but there is no centralised, concentrated effort by MCM. It was stressed that MCM has a responsibility to support the development of a centralised research programme. There is currently a collaborative project with PLAAS (UWC) underway to assist MCM. Although the field of economics in general has a good understanding of the effect of global economic drivers, there is still no mechanism in place to make this information available to managers.


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Table 1: List of objectives, detailing current fishery status and priority next steps, as well as the responsible entity.

Objective Issues Priority Step Description of step Comments (including details of progress,

barriers etc)

Next steps (to be undertaken within the next

18 months) Responsibility

Objective 1:

The managing authority has a good understanding of the ecosystem impacts of fisheries including target, non‐target and general ecosystem impacts

Issues Priority Step Description of step Comments (including details of progress, barriers etc)

Next steps (to be undertaken within the next 18 months)

Responsibility

Target species or valuable retained bycatch (Objective: Research and management should aim to ensure sustainable utilisation = Type A species)

1.1 Good understanding of life history parameters that enable adequate stock assessment (e.g. natural mortality, age length key, age at maturity, factors affecting recruitment)

a M.capensis 3, 5, 6, 14, 66 High 3.5

Research programme to address needs is in place/ Research programme adequately addresses priority needs and is producing preliminary results.

Research is not yet sufficient. Priorities include: o Natural mortality o Variability in

recruitment o age at maturity Currently none of these are known. Life history research underway on the Nansen by Marek Lipinski and Torre Stromme. Data currently being validated by Tracey Fairweather and Rob Leslie.

Research on fecundity, ageing (age at length key, age at maturity, population structure etc), genetics are underway. There is a need to identify spawning areas. Unanswered questions relate to differing catchability co-efficient (q) between south and west coast. Once validation is complete, data cleaning should commence. There is a need for more shore based sampling and tagging.

Demersal SWG


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barriers etc)



b M.paradoxus 3, 5, 6, 66 High 3.5


Research is not yet sufficient. Priorities include: o Natural mortality o Variability in

recruitment o age at maturity Currently none of these are known. Life history research underway on the Nansen by Marek Lipinski and Torre Stromme. Data currently being validated by Tracey Fairweather and Rob Leslie.

Research on fecundity, ageing (age at length key, age at maturity, population structure etc), genetics are underway. There is a need to identify spawning areas. Unanswered questions relate to differing catchability co-efficient (q) between south and west coast. Once validation is complete, data cleaning should commence. There is a need for more shore based sampling and tagging.

c Monk 15 High 2.5

Research needs have been identified and prioritised/ Research programme to address needs is in place

Illicia have been collected. Identify scientist to ‘read’ illicia and develop age length key.

d Kingklip 15 High 2.5


No ageing for data exists for kingklip. Understanding of kingklip is better than monk; Considered a priority because of overexploitation on south coast.

Stock structure related research.


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barriers etc)



e Sole New format


Bycatch of sole in the hake fishery is well understood. However, survey covers the grounds from where 95% of the catches are taken, but is not covering entire distribution. Limited stock assessment model used (data poor and assumes a constant catch strategy).Stock assessment revised every year. Otoliths have been collected.

1.4 The spatial distribution (including transboundary distribution) is adequately understood

a M.capensis 1, 4, 10 Moderate 4

Research programme adequately addresses priority needs and is producing preliminary results.

Von der Heyden et al. 2007. More tissues samples have been collected.

Analysis of additional tissue samples pending.

b M.paradoxus 1, 4, 8 High 4

Research programme adequately addresses priority needs and is producing preliminary results.


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barriers etc)



1.5 The stock identity and/or genetics is well understood

a M.capensis 1, 4, 10 Moderate 2 Research needs have been identified and prioritised.



b M.paradoxus 1, 4, 8 High 3.5




By catch species that are threatened e.g. seabirds, vulnerable to over exploitation or the target of another fishery (Objective: to minimize bycatch = Type B species)

1.6 The impacts of the fishery on bycatch or vulnerable species have been quantified

a Snoek 16 Moderate 1.5

No research programme initiated/Research needs have been identified and prioritised.

Limited understanding, no stock assessment.

b Other linefish 17, 26, 27, 28 High 3 Research programme to address needs is in place.

Get observer and logbook data from the inshore trawler industry.


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barriers etc)



c Horse mackerel Moderate 3 Research programme to address needs is in place.

Horse mackerel - Surveys: improve interpretation (trends, ageing). No immediate perceived threat.

Use pelagic data; Call a joint meeting of pelagic and demersal groups.

d Seabirds 20,21,22, 32 High 6 Results are peer reviewed.

Papers have been submitted for review.

The program needs to continue and build a data series.

e Sharks 18, 24, 25, 30 Moderate LL=6 TR=2.5

Longline (LL) – (6) Results are peer reviewed; Trawl (TR) – (2.5) Research needs have been identified and prioritised and programme partially in place.

Papers on the impacts of the longline sector have been submitted for review. However, trawl has not been as well research - with studies focusing on species rather than the fishery as a whole. Abundance estimates of shy sharks and other small inshore sharks fluctuate. Pelagic shark catches are infrequent on the surveys and thus it is difficult to assess the impact. However, Squalus megalops are on the increase.

Fishing has moved to deeper water and this has implications for species about which little is known. There are concerns about some key and vulnerable species in shallower water.


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barriers etc)



Other bycatch species that, based on existing understanding, are unlikely to be vulnerable to the current level of exploitation (Objective: keep a watching brief = Type C species)

1.7 Monitor relevant catch and survey data

a Other bycatch species 19, 29, 31 Low 3

Research programme to address needs is in place.

Monitoring of biomass index takes place routinely.

General Ecosystem considerations

1.8

Fishing impacts on marine habitats and ecologically important areas e.g. spawning areas, nursery areas, predator foraging areas, have been assessed and quantified.

38, 42 High 4.5

Research programme adequately addresses priority needs and is producing preliminary results which are published in reports/ Research programme is comprehensive and results are regularly published in reports.

Lots of research has been done and is underway but hasn't been collated. Lara & Sam's PhD project. SANBI is spearheading a project to determine an offshore MPA. FAO General resolution on VME (Vulnerable Marine Ecosystem) and technical guidelines for implementation of this resolution have been developed. SA is thus obligated.

Need to attend CCAMLR and SEAFO VME meetings in 2009 (ideal candidate - Toufiek Samaai).


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barriers etc)



1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on hake species.

33,34 Moderate 4

Research programme adequately addresses priority needs and is producing preliminary results which are published in reports.

Current studies allow for development of trophic models.

A far more detailed and comprehensive study needs to be completed.

1.10

There is good understanding of the diet and role of hake species as secondary consumers in the trophic web.

33,34, 35 Moderate 4

Research programme adequately addresses priority needs and is producing results which are published in reports.

Current studies allow for development of food web models. There are stock assessment models which incorporate hake diet.

Year of the stomach planned (but funding restricted)

1.11

There is good understanding of the ecosystem impacts of supplementary feeding (by making offal and/or catches available to predators).

39, 40 Moderate 2 Research needs have been identified and prioritised.

Work was done some time ago by Patti Wickens.

Offal management program needs to be developed.

1.12

There is good understanding of ecosystem impacts of de-predation by top predators including its impact

40 Low Not priority


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barriers etc)



on the economic viability of the fishery.

1.13

There is a good understanding of gear loss and/or ghost fishing including entanglement

36 Low Not priority

1.14

Disease related risks (e.g. from imported fish products like bait) are well understood.

N/A

Objective 2:

Ecosystem impacts of fisheries are included into management advice



Responsibility


2.1 The relevant life history parameters are incorporated into management strategies and appropriate management actions are implemented Demersal SWG/RMWG


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barriers etc)



a M.capensis 3, 5, 6, 14, 56, 74 High 5.5

Partial implementation/Fully implemented into stock assessment or permit condition\licence agreement etc.

Operational Management Procedure (OMP) under revision.

b M.paradoxus 3, 5, 6, 56, 74 High 5.5


Operational Management Procedure (OMP) under revision.

c Monk 15 High 5 Partial implementation

Limited stock assessment revised annually (replacement yield model used); Precautionary catch limits exist.

Improve model; estimate abundance; improve compliance; catch reduction needed; there is a need for a sharing arrangement to be developed


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barriers etc)



d Kingklip 15 High 5.5


Precautionary catch limits and closed season over spawning season in place.

e Sole 4

Activities towards implementation (e.g. identification of appropriate management actions).

Management objective is to reduce impact to sustainable level. Regulations are in place - TAC is set. Commercial data is being validated; results will be presented at the working group meeting next year.

Surveys on distribution and effects of environmental behaviour; ensure that observer data captures details/info on sole bycatch. Develop adaptive management approach.

2.2 All fisheries data are incorporated into management strategies and appropriate management actions are implemented

2.3 All fishing mortality including bycatch, poaching and discarding is adequately incorporated into stock assessment models

a M.capensis 2, 74 High 6 Partial implementation Currently incorporated through robustness testing.

Compliance needs to be improved. Logbooks need to be accurately filled in to reflect discards.

b M.paradoxus 2, 74 High 6 Partial implementation Currently incorporated through robustness testing.

Compliance needs to be improved. Logbooks need to be accurately filled in to reflect discards.

2.4 The spatial distribution (including transboundary distribution) is adequately incorporated into stock assessment or other management advise including the broader MPA planning process.

a M.capensis 1, 4, 10 Moderate 4

Activities towards implementation (e.g. identification of appropriate management

Current model is not spatially explicit, but does consider some immigration and migration.

OMP under revision and will include spatial segregation (likely to include 4-6 areas i.e. inshore and offshore for


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actions). south and west coast and ideally for Namibia too)

b M.paradoxus 1, 4, 8 High 1 No management actions implemented or strategy developed whatsoever.

Current model is not spatially explicit, but does consider some immigration and migration.

Operational Management Procedure under revision and will include spatial segregation (likely to include 4-6 areas i.e. inshore and offshore for south and west coast and ideally for Namibia too); collate the data from pelagic and demersal sectors; a joint meeting between the pelagic and demersal sectors is needed.

2.5 The stock identity and/or genetics is incorporated into stock assessment models or other management advise

a M. capensis 1, 4, 10 Moderate 1 No management actions implemented or strategy developed whatsoever.

The current stock assessment model assumes one stock.

b M. paradoxus 1, 4, 8 High 1 No management actions implemented or strategy developed whatsoever.

The current stock assessment model assumes one stock.


2.6 Appropriate management actions, e.g. gear restrictions, closed areas/seasons etc., have been identified and tested and are supported by stakeholders.


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a Snoek 16 Moderate 6

Fully implemented into stock assessment or permit condition\licence agreement etc.

Precautionary actions are taking place (‘move on’ rule, 20% catch limit per trip) Permit conditions are implemented but may not be effective. Management of snoek catches should be addressed across sectors.

There is a need to discuss how snoek catches (target and bycatch) should be addressed across sectors; Conduct stock assessment to evaluate snoek stock status. Demersal SWG needs to send data to the linefish SWG.

b Other linefish 17, 26, 27, 28 High 3.5

Responsibility assigned (e.g. relevant researcher, task group constituted, or RMWG etc.)/Activities towards implementation (e.g. identification of appropriate management actions).

Linefish are assessed using yield per recruit models so catches aren’t included. Therefore bycatch is currently not included in the assessment.

c Horse mackerel 4


d Seabirds 20,21,22, 32 High 6.5

Incomplete suite of measures implemented and supported by stakeholders/Practical, cost effective mitigation measures that consider the entire eco-system are implemented and supported by stakeholders.

There are problems with compliance - application in strong wind wraps the line around the warps and cause safety problems.

Offal management needs to be investigated and potential alternatives to the tori lines for the trawl fishery.


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e Sharks 18, 24, 25, 30 Moderate 1 No consideration of mitigation measures.

Some species are retained by the trawl sector. Although hake longline catch R. straeleni, they are not retained. The effort management implemented in 2008 will indirectly limit catches.

Consider closed areas.

2.7 Management minimizes bycatch

a Snoek 16 Moderate

b Other linefish 17, 26, 27, 28 High 2.5


OVERARCHING ISSUE - There is no holistic plan in place that the group knows of but some independent studies which are sector specific (e.g. linefish).There are bycatch limits introduced on kob, kingklip and monk which is the start of a bycatch management program. Kob - move on clause and individual (company) bycatch limits with a total for the industry.

An inventory of current work needs to be compiled and gaps assessed.

c Horse mackerel


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d Seabirds 20,21,22, 32 High 6 Adequately inclusion into permit conditions.

There is reasonable compliance in the trawl sector, but inadequate in the longline sector. The use of a tori line in strong winds is problematic - wraps around the warps and cause safety problems.

Improve compliance. Conduct further research of seabird mitigation measures.

e Sharks 18, 24, 25, 30 Moderate 1 No regulation whatsoever.

Other bycatch species that, based on existing understanding, are unlikely to be vulnerable to the current level of exploitation (Objective: keep a watching brief = Type C species; Note that no specific management is required until threshold is exceeded; then species becomes a type B species)

2.8

Monitoring in place and relevant indicators/thresholds are developed for adaptive management

a Other bycatch species 19, 29, 31 Low 4


Not considered a priority.


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2.9

Appropriate management actions, e.g. gear restrictions, closed areas/seasons etc., have been identified and tested and are supported by stakeholders to address fishing impacts on marine habitats and ecologically important areas.

38, 42 High 5 Refined testing and/or investigation with stakeholder support.

Offshore MPA project underway, gear restrictions - mesh, bobbins etc. Unsure as to whether pollution concerns are captured under this point.

Identify management measures to limit impact to benthic habitats.

2.10

The necessary biomass to sustain healthy populations of these predators (by volume and spatially) has been quantified and these needs are formally included into management procedures.

33,34 Moderate 1 No management actions implemented or strategy developed whatsoever.

There has been no discussion and few studies on this issue. Note: main predators are hake themselves (capensis feeding on juvenile paradoxus) and seals.

Build inter-specific predation into the stock assessment model. Further work needed to link foodweb considerations into the stock assessment model


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2.11

The biomass needed to ensure stability in the ecosystem has been quantified and the ecosystem impacts of fishing on secondary consumers has been formally included in management procedures.

33,34, 35 Moderate 2 Issues have been identified.

Environmental effects in addition to fishing pressure need to be investigated and incorporated into management if possible.

2.12

Fisheries operations have been amended to mitigate the impacts of diet supplementation on top predators.

39, 40 Moderate 2 Issues identified.

This is a big problem in the LL sector with substantial economic losses due to catches lost to seals. This also impacts mortality assessments. The yellowfin tuna pole fishery follow LL hake vessels using the "chummed water".

Offal management program needs to be developed.

2.13

The impact of gear loss and/or ghost fishing including entanglement are included in management procedures

36 Low Not priority

2.14

Discarding of pollutants (e.g. plastics) is included in management procedures

41 Negligible Not priority


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Objective 3:

The social wellbeing of dependent fishing communities is accounted for in management advice



Responsibility

3.1

MCM, as custodian of a common resource (that policy requires to be utilized for the benefit of all South Africans), has a good understanding of the role of the fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

44, 45, 48, 49, 50, 51, 52, 53 Extreme 1

No understanding of the issues and no study planned.

Lack of internal communication between units and departments in MCM and with DEAT (social livelihoods programme); lack of leadership, lack of capacity.

Management commitment to accept responsibility which is not through the allocation of quota; Establish Socio-economic Unit within MCM; Initiate research programme to understand social issues;


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3.2

Issues of poverty alleviation (e.g. food security, primary health care and basic education) are included in management plans and policies and appropriate management actions are taken.

44, 45, 48, 49, 50, 51, 52, 53 Extreme 1 No strategy for action

whatsoever.

Major implications for handline sector. There are some ad hoc initiatives in place (SAMSA; ILO etc); MCM should ensure compliance with these instruments.

Undertake audit: what are the key requirements to develop a standard; who can implement which aspects.

3.3

Social implications related to the fishery are included in Integrated/Local Development Plans.

44, 45, 48, 49, 50, 51, 52, 53 Extreme 2

Good understanding of the role this fishery plays in the local economy.

To the group’s knowledge there is no inclusion in IDP; issues of economies of scale; Industry has implemented many socio/economic actions; dispersion across many communities.

May not be relevant to Hake; but would be easy to do a baseline survey to capture employment data, and identify from which communities workforce is sourced from, etc.

3.4

MCM has sufficient capacity to address gazetted social priorities (e.g. poverty alleviation, job creation, food security, primary education, health care).

44, 45, 48, 49, 50, 51, 52, 53 Extreme 1 No capacity. Barrier = Lack of

leadership.

Develop understanding of capacity needs; MCM need to develop clear understanding of what is their responsibility and to which extend.


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3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MCM and other line ministries and NGOs are established

44, 45, 48, 49, 50, 51, 52, 53 Extreme 2

The relevant agencies have been identified, but there is no communication or collaboration.

Develop clear strategy identifying MCMs responsibility and role; identify possible partners.

Objective 4:

The wellbeing of the fishing industry is incorporated into management advice.



Responsibility

4.1 Individual rights are economically viable. 72 Moderate 1.5

No management actions implemented or strategy developed whatsoever/Some indication of intention to develop a strategy.

Permit Structure is hampering small scale structure; no work done regarding minimum viable quota, there is an inherent risk associated with small quota holders.

Address permit structure for handline fishery; formulate clear objective; policy needs to address minimum viable quota.

4.2 An appropriate and fair rights allocation process is in place.

55, 73 Low 4

Long-term rights allocated and/or no performance review criteria developed.

No clear review criteria; no clear process.

Develop performance criteria and design review process in consultation with rights holders in all sectors; rights holders need to be informed about the consequences of non-performance.


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4.3

Management of the fishery is aimed at long-term financial stability and security.

43 Moderate 3

Structures in place to ensure transdisciplinary collaboration and stakeholder co-operation (e.g. transdisciplinary working group or task group).

Large sector is stable (80%) but handline sector has been left behind; MCM has never expressed concern regarding long-term stability; management is not concerned with financial security but resource stability;

Management needs to consult with handline sector to identify what can be done (Hake WG does not represent all sectors).

4.4

All rights holders have adequate business skills and marketing skills

47 Low 2 Needs assessment undertaken and skill needs understood.

Part of rights allocation criteria but unclear.

Determine a profile for each sector; systematic evaluation necessary.

4.5

All stakeholders possess adequate skills to participate in co-management.

47 Low 4 Mechanisms are in place but don't fully address needs.

Different between sectors; not all stakeholders are represented on fora (handline sector), which implies that skills exist.

Ensure all stakeholders are represented; ensure participation and feed back loop.

4.6

Effective training mechanisms are in place to provide EAF skills development to relevant members of the industry (e.g. responsible fisheries training courses, safety at sea).

46 Low 5.5

Mechanisms are in place which aim to address needs but there is no systematic evaluation/Mechanisms are evaluated and adjusted accordingly

Good implementation in the trawl sector: needs to be rolled out to longline and handline sector.

Ensure that everybody is partaking in the training; make training mandatory.


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4.7 The fishery is eco-labelled. 84, 85 Moderate 6 Addressing conditions of

certification.

Only deep sea trawl sector (may not be appropriate for small scale sector).

Fishery undergoing re-certification.

4.9

The industry has a strategy to ensure long-term market security (e.g. diversity of markets/products, product branding).

54 Low 7 Strategy is amended and implemented successfully.

All sectors. No action necessary.

4.10

There is a clear understanding of the economic context of the fishery.

44, 45, 48, 49, 50, 51, 52, 53 Extreme 4 Preliminary research

results.

Some studies have been done, but only snapshot data available.

Need to develop capacity within MCM for ongoing data/ information collection in all sub-sectors.

4.11

Economic implications of management decisions are clearly integrated into fisheries management advice and procedures.

44, 45, 48, 49, 50, 51, 52, 53 Extreme 2

Some indication of intention to develop a strategy.

Ineffective management, shortage of skills, each division are operating in silos, lack of vision and communication, lack of institutional memory. Industry's view is to some extent accounted for through RMWG.

Develop strategy to address this issue.


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Objective 5:

The managing authority has transparent and participatory management structures that ensures good communication and information sharing locally and regionally



Responsibility

5.1

Effective and cohesive industry associations are in place and functioning.

7

Group meets regularly, actions are followed up on and feedback of subsequent record of decisions with explanation.

In place for all other demersal sectors except informal handline sector; longline and artisanal are organised but not as effectively.

Ensure longline association is also on same level.

5.2

Effective participatory management fora (e.g. Working Groups) are functioning.

60,61, 80, 83 High 6 Minutes are circulated and adopted and follow-up actions taken.

SWG and MWG are functioning; documents are publicly available the following year.

More open involvement.

5.3

Working groups have good stakeholder participation (e.g. fishing industry, NGO etc).

60,61, 80, 86 High 5 Key government sectors and industry attend meetings regularly.

Industry is represented but not civil society; EAF brings different perspective which is not addressed in current WGs; responsible fisheries group is including NGO.

Identify forum which will work with all parties participating.


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5.4

Channels or forums are in place for communication with other government agencies (e.g. oil and minerals, transport, safety at sea, health standards, and customs).

70, 71, 80 Moderate 3 Ad hoc communication and information exchange takes place.

MOU with SARS; social department; department of labour.

Identify all relevant partners; develop communication channels and formalise them where necessary.

5.5

Channels or forums are in place to facilitate communication among senior managers of the different fisheries departments (i.e. compliance, research and resource management).

60,61, 80 High 6 Regular meetings, a record of decisions and actions are taken.

Limited feedback. Improve feedback mechanisms.

5.6

Channels or forums are in place to facilitate communication among operational managers of the different fisheries departments (i.e. compliance, research and resource management).

60,61, 80 High 3 Ad hoc communication and information exchange takes place

Some ad hoc communication.


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5.7

Regional co-operation is operational and has been institutionalized (e.g. BCC)

a BCC 8, 10, 69 High 3

There is knowledge of a shared stock and intention to share information

Only intention to share information, but nothing is being shared. Knowledge of shared stock but not a good understanding of it.

Share information.

5.8 Namibia/South Africa is an active member of relevant RFMO

a SEAFO 8, 10, 69 High 7

Participating member and developing recommendations/resolutions

Participate in recommendations and resolutions

Participate in 2009 meetings.

Objective 6:

Management plans incorporate EAF considerations



Responsibility

6.1

Sector management plans which incorporate EAF considerations for all three dimensions of EAF are in place and peer reviewed

76,77 Low 3 ERA has been undertaken to identify issues.

Draft plan developed by LTRAMP. ERA completed, management plan not yet in place. Possibility exists that a catch all management plan may not be appropriate.

Develop standard management plan template for fishing sectors. For hake, within 18 months.

6.2 All relevant National Plans of Actions have been developed and implemented

a Seabirds NPOA 20,21,22, 32 High 6.5 The NPOA has been implemented through

Hake longline not fully compliant. Deepsea Trawl

EPV increase observations at sea and consider


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regulations (e.g. licence conditions)/The NPOA has been fully legislated and there is good compliance.

sector is compliant. observers onboard vessels.

b Shark NPOA 18, 24, 25, 30 Moderate 3 A draft NPOA is in place. A draft plan is in place. Moderate shark bycatch in the sectors.

Adopt plan within next 18 months.

c IUU NPOA 2 There is some indication of intention to develop a NPOA.

Unregulated fishing in hake very little, with little illegal fishing in hake. Unreported is a reality. Outdated reporting systems. Need to standardise to electronic system. Do not have modern technology and capacity.

Standardise electronic system. MCM needs to understand technology industry is using.

d Capacity NPOA 5.5

The NPOA has been partially implemented but is not legislated (e.g. through permit conditions)/The NPOA has been implemented through regulations (e.g. licence conditions).

Indication and intent to develop a plan of action. There is an effort management plan - fully implemented in trawl and partially in longline, i.e. the plan is implemented in 93% of industry.

Take work which has been done by MCM and industry and document it.


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Objective 7:

Good compliance to regulations reduces ecosystem impacts of fisheries

Issues Priority Step Description of step Comments (incl details of progress, barriers etc)


Responsibility

7.1

Appropriate regulatory mechanisms exist and adequate follow-through provide effective dis-incentive for non-compliance

58,59 Moderate 3 75 % of EAF considerations are appropriately regulated.

Prosecution lack of knowledge and follow through.

Training for prosecutors.

7.2

Adequate mechanisms are in place to support voluntary compliance (e.g. performance review procedures, eco-labelling, etc).

58,59 Moderate 5

Incentives implemented for 2 of the 3 dimensions (i.e. Ecological and Human Wellbeing, Governance).

Trawl fishery on score of 5. Rights allocation itself was an incentive rewarding those that comply with an improved chance of receiving a right over those that don’t; also MSC certification acts as an incentive to comply and has resulted in good voluntary compliance in the trawl sector.

Reward compliance. Identify incentives for other fisheries in hake.

7.3

All aspects of MCS are functioning well and are leading to good compliance:

58,59 Moderate 5 N/A Most aspects functioning well.

Aerial patrol once a month. Raise awareness with judges and prosecutors.


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Objective 8:

Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

Issues Priority Step Comments (including details of progress, barriers etc)


Responsibility

8.1

Good research capacity is available to adequately understand EAF in this sector.

67 Extreme 2 Good understanding of the capacity needs.

The need is understood but positions are yet to be created or filled with suitable candidates.

8.2

The skills development mechanisms (e.g. training courses etc.) are adequate to allow EAF related research.

67 Extreme 1 No understanding of skill needs.

The level of science required to hit the ground running with EAF cannot simply be resolved by "training" of junior or inexperienced scientists. EAF scientists need to be self-reliant, show initiative, open-mindedness and exceptional communication skills. Knowledge and ability does exist in the SA scientific community as a whole but the mechanisms to apply this knowledge and manage further research is not in place. For example - the development of an active EAF RMWG and efficient access to funds necessary.

Develop EAF working group (identify participants, hold first meeting).


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8.3

The funding to facilitate adequate capacity, equipment and skills for research are understood and met.

67 Extreme 3 Less than 50% of required funding obtained.

Research surveys are typically shortened if not cancelled, several posts need to be created and filled (data management, EAF, compliance). An additional problem is that it is VERY difficult to efficiently access what funds do exist.

Undertake needs assessment. Investigate international opportunities.

8.4

MFMR/MCM has adequate capacity to advise fisheries management decisions

68 Extreme 1 Capacity needs not understood.

All the positions are currently filled but they don’t understand the needs properly. More measures are put into place.

Assess capacity needs; this will inform funding requirements.

8.5

MFMR/MCM has the necessary skills to support EAF management i.e. the technical expertise which allows for the identification of the appropriate management tools (e.g. closed area/season, quota, gear restriction)

68 Extreme 2 Good understanding of needs.

There is a understanding of the skills needed but the skills we do have are very limited.

Skills audit required.


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8.6

MFMR/MCM has funding to facilitate adequate capacity, equipment and skills for implementing management decisions

68 Extreme 1 No understanding of funding needs.

To date funding is adequate at about 100%, but not sure how much is required.

Adequate funding for current capacity, but additional capacity will require additional funding.

8.7 There is adequate capacity to address compliance issues

Moderate 6 85% of required positions filled.

Not all positions are currently filled.

Compliance strategy developed for hake.

8.8

The compliance section has the necessary skills to implement an EAF (including a good understanding of the regulations, the appropriate penalties and evidence collection)

Moderate 3 Less than 50% of staff are at required levels.

Little training for inspectors in terms of hake industry.

More training with reference to EAF.

8.9

There is adequate funding to facilitate capacity, equipment and skills for compliance

Moderate 3 Less than 50% of funding obtained. Challenges in funding.

Ensure proper budget. More equipment for ports dealing with hake.

8.10

Employment equity within MFMR/MCM according to transformation goals has been achieved

73 Low 7 All (100%) of the employment equity goals are met

Guided by HR policies and we are complying.


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Objective 9:

Good data procedures exist to support EAF implementation



Responsibility

9.1

Both land-based and at sea observer programme is operational and provides accurate information to inform the management of the sector.

63,64 High 3

Training programme implemented to ensure that observers are adequately skilled in data collection.

Analysis of observer data quality and coverage has not been effective to date. The TR sector has funded an independent observer program as well as BirdLife;

There is a lack of dedicated scientific effort to analyse the data. Better direction could be given to the service providers. Data collection needs to be prioritised to ensure bycatch data does not fall off the list.

9.2

Accurate logbook information informs research and management of the sector.

Moderate 5

Functional system in place to get logbooks from vessels to MFMR in efficient and timely manner.

There is a formal training program run by the Responsible Fisheries program. In addition good communication with Rob Cooper has improved compliance. However, there have been several instances of logbooks for years at a time not being submitted. There is concern that the system to get logbooks is not efficient and timely.

Need a formal training program and follow up on vessels which have not submitted logbooks in their entirety or adequately completed.


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9.3

Accurate Landing declaration information informs the management of the sector.

New format

9.4

Appropriate electronic data management systems are in place (research and catch data).

62 High 3

Current data management system only incorporates single species data or development is incomplete.

MAST is still being tested and developed but this is only for commercial data and not research.

Data managers (NOT of metadata) are CRUCIAL - they need to understand the data, be able to mine, query, fix and implement validation controls.

9.5

Data management systems for socio-economic data are in place and are being used.

44 Extreme 1 No electronic data management system in place.

There is intention, but currently no system in place and not sure how strong the intention is beyond the NORSA funded project; some data exists from rights allocation process - group was unsure of where that data is now stored;

Locate existing information and evaluate database.

9.6

Electronic data management systems (operational data) are in place

62 High 3

Current data management system is inadequate or development is incomplete.

Current data system (MAST) in place b but still new system so some problems, but these are resolved as they arise. Compliance staff being trained to access MAST.

There is a need to employ a database manager. Integrate compliance and resource into the MAST. Verification processes needs to be added.


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Objective 10:

External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc)



Responsibility

10.1

There is good understanding of the effect of other fisheries on this fishery and vice versa or within the fishery

43, 57 Moderate 2.5

Research needs have been identified and prioritised/Research programme to address needs is in place.

Longline versus trawl, linefish bycatch in the hake fishery - Need better understanding of effects on other fisheries.

Better understanding of hake consumption in space in time.

10.2

There is a good understanding of the effect of external ecological changes and climate change on this fishery

81, 87, 88, 92 Extreme 2.5

Research needs have been identified and prioritised/Research programme to address needs is in place.

Some research done, but not enough.

Continue research into climate change.

10.3

There is a good understanding of the effect of other industries (e.g. mining) on this fishery

89, 90, 91 Moderate

There is ongoing research by Petro SA; there is a need to address the effect on hake recruitment; legislation inadequate, poor communication between government departments; poor understanding of effect of oiling.

Follow up on results of reports.


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10.4

There is a good understanding of economic drivers (e.g. oil price, exchange rates etc.) on this fishery

95,96 High 7

Comprehensive understanding based on reliable, long-term data series.

Relevant data is available and good understanding exists in the field of economics, however the information is not transparent or accessible to fisheries managers.

Identify which information is needed; Source the relevant information and channel to management;

10.5

There is a good understanding of the effect of social factors (e.g. HIV/Aids) on this fishery.

93,94 High 2 Research needs have been identified and prioritised.

Industry does a lot of work in this area; Good understanding from individual corporate perspective, but there is no centralised, concentrated effort by MCM. MCM has a responsibility; PLAAS has a project to assist MCM.

Develop a central point of departure, MCM should care about this and support this.


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Annex 1: List of participants

Name AFFILIATION Rob Leslie MCM Jean Glazer MCM Mike Bergh ORLAC Craig Bacon SECIFA John Field UCT Rebecca Rademeyer UCT James Gaylard OLRAC Doug Butterworth UCT Melanie Smith CAPFISH Michelle De Decker MARAM Nicola Okes WWF Lynne Shannon MCM Tracey Fairweather MCM Bronwyn O’Connell BirdlifeSA Nico Bacon SADSTIA Peter Simms MCM Rui Ventura SADSTIA Suleiman Salie SADSTIA John Pope SADSTIA Mafaniso Hara PLAAS-UWC Tim Redell SADSTIA Jackie Sunde Masifundise Barbara Paterson UCT/WWF Anel Nortier MCM Astrid Jarre UCT Roy Bross SADSTIA Saasa Pheeha MCM Polo Buyelcezwa MCM Irvin Esau Sea Harvest Samantha Petersen WWF Justice Matshili MCM Lungelwa Renge MCM Toni Brierley MCM Regina Dyasi MCM Colleen Potgieter WWF


Citation: Petersen SL, Okes N, Basson J, Paterson B and J de Goede. 2010. Ecological Risk Assessment Review for the South African Small Pelagic Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

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Ecological Risk Assessment Review for the South African Small Pelagic Fishery

Compiled by Samantha Petersen, Nicola Okes, Janine Basson,

Barbara Paterson and Johan de Goede 1. Introduction

The small pelagic fishery dates back to the late 1940’s. It is the largest in South Africa in terms of catch volumes and the second most important in terms of value. Two species are the main targets, namely sardine Sardinops sagax and anchovy Engraulus encrasicolus, with associated bycatch species being red-eye round herring Etrumeus whiteheadii and Cape horse-mackerel Trachurus trachurus capensis. The fishery is currently managed in terms of an Operational Management Procedure (OMP) that sets annual Total Allowable Catches (TAC) for anchovy and sardine. The value of fish landed in 2008 was approximately R1.456 billion. The Ecological Risk Assessment (ERA) workshop for the South African small pelagic fishery took place in Cape Town, South Africa, from the 30th of May to the 3rd of June 2005. A total of 91 issues were identified for this fishery by workshop participants, of which 50 (55%) were rated as being of ‘Moderate’ risk or higher. 48% of issues identified fell under the ‘Ecological Wellbeing’ component; only “impacts of removal of forage fish on land-based top predators (e.g. seabirds)” scored an ‘Extreme’ risk rating under this component, emphasising the importance of these target species as food for top predators. 19% of issues identified fell under the ‘Human Wellbeing’ component, and mostly revolved around the lack of understanding and unpredictable nature of decadal-scale fluctuations of stock abundances in this fishery. 33% of issues identified fell under the ‘Ability to Achieve’ component; the main governance issues centred on the lack of a functional Resource Management Working Group (RMWG) and the lack of statutory requirement for participatory decision making. A workshop to review the ERA took place in Cape Town, South Africa, on the 20th and 21st of July 2009, hosted by Marine and Coastal Management (MCM), a branch of the Department of Environmental Affairs and Tourism (DEAT), and facilitated by Dr. Samantha Petersen, Nicola Okes and Janine Basson of WWF-South Africa and Dr Barbara Paterson of the MA-RE Institute, University of Cape Town.


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After wide distribution of invitations, the workshop was attended by a total of 24 participants. Attendees were from Marine and Coastal Management (MCM, Research and Resource Management), the small pelagic industry, the “Weskus Pelagiese Vissersvereniging” and the University of Cape Town. Unfortunately no representative of the MCM Compliance section attended. Nonetheless, informative discussions took place. In addition two colleagues from Mozambique and Kenya attended the workshop, sponsored by the Food and Agricultural Organisation, through the EAF Nansen project. Please see Annex 1 for a complete list of attendees. 2. Results

Summary of fishery status and next steps

The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in Table 1. Objective 1: The managing authority has a good understanding of the ecosystem impacts of the South African Small Pelagic fishery including target, non-target and general ecosystem impacts

In the past, research within the small pelagic fishery has prioritised sardine and anchovy over and above other small pelagic species, such as, horse mackerel, chub mackerel and redeye, and thus the life history parameters of sardine and anchovy (which are currently the only Right Holder allocated TAC species) are better understood. The natural mortality of sardine is fairly well understood, although changes in natural mortality of sardine over time are not. The natural mortality of anchovy is not as well understood and, although more accurate estimation of natural mortality might not currently be seen as a priority, it may well be within an ecosystem context and needs to be kept in mind. Because redeye is not seen as a priority species, surveys do not cover the entire adult population distribution; ideally, within an ecosystem context, surveys should be expanded to include the offshore and easterly boundaries of redeye distribution. There is a good understanding across the three main species including the factors affecting recruitment. How environmental effects influence recruitment still needs to be researched. Good preliminary data of fisheries dependent parameters exist and are incorporated into stock assessment models, although monitoring of legal catches can be improved. The group felt that fishing mortality across all three species is well understood and carefully monitored and, although dumping is possible within the small pelagic fishery, it is highly unlikely. The impacts of the fishery on bycatch species have been identified and prioritised, but landing data and observer data must be analysed to determine the extent of bycatch of horse mackerel, linefish and chokka within the small pelagic fishery. General ecosystem considerations are poorly understood within the small pelagic fishery and the need was


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stressed to identify possible projects to address fishing impacts on marine habitats and ecologically important areas such as spawning grounds. Furthermore, a risk assessment is underway to establish disease-related risks, e.g. from imported fish products like bait, which includes the extent of importation. If need be, appropriate mitigations measures will be identified and implemented. Objective 2: Ecosystem impacts of fisheries are included into management advice

The group felt that, broadly speaking for sardine and anchovy, most available data on all life history parameters are taken into account in the operational management procedure (OMP) for small pelagic fish stocks. Life history parameters for redeye are not taken into account as there is no stock assessment (a precautionary upper catch limit (PUCL) is utilised for the management of the redeye population) for this species. The consensus is that all available fisheries data are incorporated into current management strategies and relevant parameters addressed by current management measures for both sardine and anchovy, although it was recognised that the need may arise in future to change the management approach for redeye. It was agreed that a redeye stock assessment must be initiated within the next 12 to 18 months. Further investigation into whether sardine must be managed as a single stock or two separate stocks is necessary and will influence the current management approach. Preliminary testing of appropriate management/mitigation measures for bycatch is underway, although the extent of chokka bycatch by small pelagic vessels still needs to be assessed. Bycatch management plans for horse mackerel and chub mackerel exist in permit conditions, and most other bycatch species, such as jellyfish, light fish and gobies are not seen as priority for management and were therefore not discussed, although the need to maintain the current observer monitoring of seals was identified. Management measures to address general ecosystem considerations are generally poor. Some issues have however been addressed within current management strategies, such as discarding of pollution, which is addressed in WWF Responsible Fisheries Training, and the two-year closed areas around Dassen and St Croix, for the protection of small pelagic fish to maintain healthy population of dependent predators, specifically African Penguins. Current practice for setting TACs and TABs can be maintained although trends in effort should be analysed and spatial aspects may need to be incorporated into the OMP in future. Objective 3: The social wellbeing of dependent fishing communities is accounted for in management advice

There is currently no framework to address socio-economic research needs and MCM lacks the capacity to address socio-economic issues. Although poverty alleviation is mentioned in the policy there is no clarity regarding appropriate management actions. It was stressed that there is a need to appoint staff within MCM who can link between fisheries and social issues and build bridges to other government departments (e.g. Health and Education). The group stressed that there is a need for MCM to develop a socio-economic research framework in


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collaboration with industry and fishers which clearly identifies MCM’s role in addressing poverty alleviation. Based on this research a management strategy needs to be developed which deals with issues at the appropriate scales and represents all role players’ perspectives (e.g. fishers and factory workers, companies, communities). Some social issues are addressed on the company level (e.g. health issues) and the local churches also play a role. The current policy and management framework addresses issues at an industry wide scale and does not consider the various components within the industry i.e. fishers, processors and Right Holder specific perspectives, etc. MCM also has no platform to engage with fishers. The appropriate mechanism to address socio-economic issues on the community scale may be the municipalities’ Integrated Development Plans (IDPs). However, at present there seems to be no holistic consideration of fisheries in these IDPs. Objective 4: The economic wellbeing of the fishing industry is maintained

It was pointed out that the current policy aims to maintain stability on an industry wide scale but does not ensure the viability of individual rights. As a result total allowable catch (TAC) reduction affects new entrants and small rights holders stronger than larger companies. It was further pointed out that MCM are concerned with resource stability but do not explicitly examine economics and financial stability on the scale of individual rights holders. Consequently MCM are unable to consider the economic implications of management decisions. The group felt that the simple relationship between catch and economic value cannot be maintained and that there is a need for MCM to identify and prioritise research needs to better understand economic relationships on all scales (i.e. the individual rights holder, the company, the industry as a whole, the global economic context, etc.). The industry has a strategy in place to ensure long-term market security through e.g. product and market diversity and product branding, although not all options are currently pursued. Although MCM does not have a forum to engage with all fishers, it was stressed that the extent and level of stakeholder engagement has improved since the original ERA in 2005. A few years ago fishers would not been involved at all whereas now there are informal forums and feedback from seagoing fishers. Nonetheless there is a need to improve these processes. It was also pointed out that although the skill level for co-management is adequate in this sector most stakeholders do not understand the operational management procedure (OMP). It was further stressed that there is a need for training on the level of the fisher. The WWF Responsible Fishing training course has been developed with co-funding from the industry to address this need. However, more training courses need to take place.


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Objective 5: The managing authority has transparent and participatory management structures that ensures good communication and information sharing locally and regionally

Effective, well functioning industry associations are in place for this sector as well as two industry associations (East and West coast) and most, but not all, fishers and rights holders are members. The small pelagic management working group (SPMWG) is functioning well and has good stakeholder participation. It was suggested to invite other interested and affected parties to the SPMWG. Both MCM internal communication as well as communication with other Government departments is very good. It was however highlighted that there is a need to enhance communication with the compliance section, and that written records of meetings are not always accessible. Objective 6: Management plans incorporate EAF considerations

There is currently no management plan in place for this fishery. At present some progress has been made to develop a framework for an overarching fisheries management plan. However, an important next step is to include social and economic considerations into this framework and plan. The plan should be finalised by March 2010. Two National Plans of Action (NPOA) are relevant to this fishery namely, NPOA-IUU and NPOA-Capacity. Neither NPOA has been developed. The main barrier to progress is the lack of clarity on who should take responsibility for this (i.e. resource management or MCS). Objective 7: Compliance to regulations reduces ecosystem impacts of fisheries

Overall, there is good compliance on the ground, with structures in place to monitor compliance (except for one issue i.e. illegal dumping). Because of the quantity of landings in the small pelagic fishery and problems of monitoring the landings, compliance want to investigate controlling the fishing effort (Issue 66). However, since 2005 when this issue was a concern, data analyses by the research department has shown that this would not work, and the Nosipho monitors are in place, functioning and effective in monitoring landings. Therefore MCS (Monitoring, Control and Surveillance) are no longer trying to control the fishery by effort. Regarding possible incentives the group felt that although MSC and other market related incentives may be relevant for the fishmeal industry, MSC for canned fish is not worth pursuing for the following reasons:

Lack of consumer demand; Compared to the global supply of these products, South Africa’s industry is too small

to compete (Industry opinion); Product value is too low.

Despite these concerns, it is acknowledged that perhaps the demand for MSC fishmeal may increase in the future. The International Fishmeal and Fish Oil Organisation (IFFO) currently


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certifies fisheries products according to responsible management of the fishery, human health, quality and best practice and animal welfare. South Africa’s big companies dealing with fishmeal and fish oil products subscribe to this organisation. Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

The group felt that for many objectives, the barriers to achieving them are the lack of communication with MCS. This is something that needs urgent addressing. Furthermore, the lack of formal training to equip staff with the skills to implement an EAF could be addressed in part through participation in workshops such as the ERAs and WWF Responsible Fisheries Training. MCM should implement further training drawing on the internal expertise within MCM. This is particularly relevant to MCS. Objective 9: Good data procedures exist to support EAF implementation

An observer programme is in place and observer data are being used in stock assessment. Nonetheless, it was felt that there is a need to enhance the existing training of observers. It was further pointed out that, because observers and monitors are vulnerable to corruption, data quality control procedures that are able to pick up data anomalies are important. The group felt that the WWF training programme (cf objective 4) will also contribute to improved data quality by enhancing fishers’ and observers’ understanding of why data is collected and how it is being used. It was pointed out that not all data can be linked (e.g. catch data and environmental data). However, a central data management approach is currently being put in place. Socio-economic data needs are currently unknown and need to be established (cf objective 3). There was consensus that, although there is a process in place through which access to information can be given, there is a general need to enhance the accessibility of data. Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc)

There is a good understanding of the direct impacts of other fisheries on small pelagic fish and information is currently being collected to better understand the interaction between small pelagics and the horse mackerel mid water trawl fishery. There is also a good understanding within industry of global economic drivers such as oil price and exchange rates because many products are export based. The effects of social factors on this sector are fairly well understood by the industry but there is a need for research to mitigate for or minimise any negative impacts.


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Table 1. List of objectives, detailing current fishery status and priority next steps, as well as the responsible entity.

Objective Issues Priority Step Description of step Comments (including details of progress, barriers etc)



Objective 1:




Responsibility


1.1a Good understanding of life history parameters that enable adequate stock assessment (e.g. natural mortality, age length key) Small Pelagic SWG

a Sardine 1,6,12 High 3 Research to address basic needs is underway

Natural mortality is [reasonably] estimated, but not the possible changes over time. Age composition for surveys is problematic, possibly because of difficulties in estimating length frequency. Not well understood how natural mortality (M) and growth change with altered distribution of the species.

Further ageing accompanied by studies of the best approach to get survey length frequency estimates. Later extend to catches. Initiate studies of spatio-temporal variation in growth and length at maturity and natural mortality to include diet studies and modelling.

b Anchovy 1, 15 Moderate 5

Research adequately addresses priority needs

Natural mortality is not well estimated and a questionable basis to age adult population. It is not well understood how natural mortality and growth change with altered distribution

Improved estimation natural mortality not seen as a priority, as OMP robustness tests allow adequately for uncertainty. Review priority for estimation because this


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of the species. should be higher in an ecosystem context.

c Redeye 16,17,19 Moderate 3 Research to address basic needs is underway

Research initiated on attaining basic life history parameters; red eye task team is investigating the feasibility of expanding the fishery.

Data on biology collected during routine acoustic surveys and from commercial catches need to be analyzed and synthesized. Ageing data should be extended to include all years.

1.1b Good understanding of the factors affecting recruitment (both population dependent and environmental) Small Pelagic SWG

a Sardine 1,6,12 High 3 Research to address basic needs is underway

Recruitment is less well estimated by surveys than is the case for anchovy, however some estimate is established. No causative factors identified. November surveys monitor total abundance (fish older than 1 year). Not well understood how recruitment changes with altered distribution of the species. Environmental effects on recruitment not well understood.

Continue existing surveys. Priority is improved representation of statistical properties of recruitment variation, particularly over periods with abundance peaks. Egg-survey under consideration. Develop methods to improve sardine sampling efficiency by trawling during surveys and precision of acoustically derived biomass estimated. A BCC project looking at environmental effects on recruitment and spatial distribution is being initiated (Led by Dawit Yemane).


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b Anchovy 1, 15 Moderate 3 Research to address basic needs is underway

Recruitment reasonably estimated by surveys, but no causative factors identified. November surveys monitor total abundance (fish older than 1 year).Not well understood how recruitment changes with altered distribution of the species.

Priority next actions is to improve representation of statistical properties of recruitment variation. Surveys are optimally designed to sample anchovy, possibly re-direct some survey effort at improved estimates of target strength and other survey related biases. A BCC project looking at environmental effects on recruitment and spatial distribution is planned to commence later this year (Led by Dawit Yemane). A BCC project addressing target strength is also planned (to be led by Janet Coetzee).


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c Redeye 16,17,19 Moderate 2

Research needs/issues have been identified and prioritised

Little existing work.

Continue extraction of data so that comparable time-series of redeye abundance indices and catch statistics can be obtained for use within a stock assessment model. A BCC project looking at environmental effects on recruitment and spatial distribution is planned to commence later this year (led by Dawit Yemane). Need to investigate target strength for red-eye.

1.2 Good understanding of the fisheries dependent parameters that enable adequate stock assessment (e.g. fishing mortality, fishing effort) Small Pelagic SWG

a Sardine 2,3,5 High 4 Preliminary data available, but not yet analysed

Legal catches reasonably well monitored.

Continue and improve monitoring.

b Anchovy 2,3 Moderate 4 Preliminary data available, but not yet analysed

Legal catches well monitored. Continue monitoring.

c Redeye 16,17,19 Moderate 4 Preliminary data available, but not yet analysed

Legal catches well monitored. Continue monitoring.

1.3 All fishing mortality including bycatch, poaching and discarding is adequately understood Small Pelagic SWG


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a Sardine 7,8,9 High 4 Preliminary data available, but not yet analysed

Bycatch and discarding: Juvenile sardine bycatch is carefully monitored. Dumping is a potential problem. Poaching is not an issue in this fishery.

Continue existing monitoring. Re-examine observer data for possible evidence for dumping.

b Anchovy 13 Low 4 Preliminary data available, but not yet analysed

Dumping is a potential problem. Although no evidence for this exists at present; anchovy may be discarded during sardine directed fishing, and potentially in future directed red eye fishing. Poaching is not an issue in this fishery.

Continue existing monitoring.

c Redeye 16,17, 19 Moderate 4 Preliminary data available, but not yet analysed

Dumping is a potential but unlikely problem. Poaching is not an issue in this fishery.

Continue existing monitoring.

1.4 The spatial distribution (including transboundary distribution) is adequately understood Small Pelagic SWG

a Sardine 3,4 High 4.5

Preliminary data available, but not yet analysed / Research adequately addresses priority needs

Monitored by surveys, but reasons for recent eastward shift not understood.

Continue monitoring. Interpretation of the shift as a feature of a two-stock situation being examined through modelling.

b Anchovy 3,14 Moderate 4.5


Monitored by surveys, but reasons for expansion eastward in the mid-90s partly understood (Roy et al. 2007).

Continue monitoring and expand on analyses.


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c Redeye 16,17,18, 19 Moderate 2


Surveys do not cover entire distribution of adults.

Ideally, surveys could be expanded or added to cover offshore and easterly extent of red eye, but this is seen as a low priority issue.

1.5 The stock identity and/or genetics is well understood Small Pelagic SWG

a Sardine 2,11 Moderate 3 Research to address basic needs is underway

Assumed to be a single stock in the past.

Modelling of a possible two-stock structure (also see above) has commenced. Work on genetics has just started; no results as yet (Shannon Hampton PhD project).

b Anchovy 2 Moderate 3 Research to address basic needs is underway


None immediately (possibly multiple stocks not seen to be as high plausibility or importance as for sardine.) Work on genetics has just started; no results as yet (Shannon Hampton PhD project).

c Redeye 16,17,19 Moderate 3 Research to address basic needs is underway


Work on genetics has just started, but no results as yet (Shannon Hampton PhD project).


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1.6 The impacts of the fishery on bycatch species or vulnerable species have been quantified Small Pelagic SWG/EAF SWG

a a) Horse mackerel 21,22 High 2


Estimates of horse mackerel bycatch are available but effects on horse mackerel populations are not quantified.

Demersal WG to update Yield-per-recruit analysis including re-evaluation of all horse mackerel time series data.

b b) Linefish 24 Moderate 2


Permit conditions require that all non-target species are landed and declared.

Landing data and observer data must be analysed to determine extent of bycatch.

c c) Chokka 26 Low 2


Permit conditions require that all non-target species are landed and declared.

Landing data and observer data must be analysed to determine extent of bycatch.


1.7 Monitor relevant catch and survey data Small Pelagic SWG/EAF SWG

a a) Lantern fish & Light fish 20 Low 5

Monitoring programme addresses basic needs and is producing preliminary results

Landings are declared and captured in land-based sampling.

Group did not consider this a priority.

b b) Chub mackerel 23 Low 4

Monitoring programme producing preliminary data, but no analysis

Landings are declared and captured in land-based sampling. Survey data assessed but found to be inadequate to model population dynamics.

Given the lack of data, it is not advisable to allow a targeted fishery on chub mackerel. A dedicated chub mackerel survey is being considered.


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c c) Jellyfish 28 Low 2 Intention to develop monitoring programme

Study initiated to assess the status of the jellyfish population.

Awaiting outcome of Nandipha Twatwa’s PhD

d d) Gobies 29 Low 5

Monitoring programme addresses basic needs and is producing preliminary results

Landings are declared. Group did not consider this a priority.

e e) Seals 30 Low 5

Monitoring programme addresses basic needs and produces preliminary results

Observer data captures the number of seals caught.

No further steps required at present.


1.8


1 No research initiated or needs identified

It is unlikely that there is major damage to the seabed. Apart from predator foraging areas, the other aspects have not been adequately assessed or quantified.

Initiate a needs assessment and develop a project proposal to address this.

Small Pelagic SWG/EAF SWG


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1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on small pelagic species.

31,32,33 Extreme 4 Preliminary data available, but not yet analysed

A comprehensive project on moult counts, breeding success, diet sampling, tracking etc for penguins and gannets is underway. Feasibility study underway to assess impact of closed areas on penguins. Diet analyses and some population assessments were conducted for seals, hake, snoek, horse mackerel and seabirds. Studies underway on penguin foraging behaviour (Algoa Bay: L Pichegru, Dyer: L Waller, west coast islands: N Parsons), and on functional relationship between penguins and small pelagic fish biomass (W Robinson)

Understand sampling bias in seabird diet samples in offloading technique used for penguins (small prey more easily retrieved). Continue monitoring of seabirds (penguins, gannets & cormorants) on offshore islands. Desktop study on hake stomach samples from research surveys is underway (Larvika Singh). Awaiting outcome on W Robinson PhD. Supporting BirdLife project to be initiated later this year. Analyses on how natural mortality in small pelagic fish attributable to cape gannets varies in relation to small pelagic biomass.


1.10

There is good understanding of the diet and role of small pelagic species in the trophic web.

31,34 Moderate 3.5

Research to address basic needs is underway / Preliminary data available, but not yet analysed

Studies of sardine and anchovy diets (including gill morphology etc) have been completed (C. van der Lingen). Studies on red eye (Y. Geja), horse mackerel (G. Louw) are underway.

Results of these should be incorporated into existing trophic models. Continue stable isotope research already underway to elucidate trophic pathways.



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1.11/1.12

There is good understanding of the ecosystem impacts of depredation and/or supplementary feeding (by making offal and/or catches available to predators.

35,37 Moderate 4 Preliminary data available, but not yet analysed

Opportunistic feeding by birds and seals not quantified. No information exists to assess supplementary feeding.

Not considered a priority at present.


1.13

There is a good understanding of gear loss and/or ghost fishing including entanglement.

43 Low Not priority

Group felt this was not a priority. Gear loss is recorded but occurs infrequently and impacts are not quantified. However, no recorded incidences of animal entanglement to date. Incentive to retrieve a lost net is high due to the value of the net. Gear loss is recorded by observers and by industry (but this information is not readily available).

Consider evaluating gear loss across sectors.


1.14

Disease related risks (e.g. from imported fish products like bait) are well understood. (Added)

10 High 3 Research to address basic needs is underway

Risk assessment underway (C. van der Lingen), which includes the extent of importation.

Awaiting results of assessment. Conduct pathogen test to ascertain whether our species are susceptible to this pathogen. If species are susceptible, appropriate mitigation actions need to be identified.

Small Pelagic SWG


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Objective 2:




Responsibility


2.1 The relevant life history parameters for small pelagics are incorporated into management strategies and appropriate management actions are implemented

Small Pelagic SWG/RMWG

a Sardine 1,6,12 High 4.5

Activities towards implementation (e.g. identification of appropriate management actions)/ Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc)

Broadly speaking available data on all life history parameters are taken into account in conditioning the operating models used for the OMP testing. Abundance estimates from surveys are key annual inputs to the OMP formulae used to determine TAC recommendations. Current model defaults to west coast parameters.

The processes for the next four-yearly review of the sardine-anchovy OMP will shortly be initiated, while the requisite annual routine assessment updates will continue. Explore incorporating alternative parameter estimation, especially for natural mortality.

b Anchovy 1, 15 Moderate 5

Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc)

Broadly speaking available data on all life history parameters are taken into account in conditioning the operating models used for the OMP testing. Abundance estimates from surveys are key annual inputs to the OMP formulae used to determine TAC recommendations.

The processes for the next four-yearly review of the sardine-anchovy OMP will shortly be initiated, while the requisite annual routine assessment updates will continue. Explore incorporating alternative parameter estimation, especially for natural mortality.


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c Redeye 3

Responsibility assigned (e.g. relevant researcher, task group constituted, or RMWG etc.)

At present PUCL which does not take life history parameters are taken into account.

Awaiting research outcomes.

2.2 All fisheries data are incorporated into management strategies and appropriate management actions are implemented Small Pelagic SWG/RMWG

a Sardine 2,3,5 High 6

All relevant parameters are addressed by management measures

Relevant data are included in either or both the operating models used for OMP testing, or used as inputs to the OMP itself. The OMP TAC outputs have essentially been implemented without change for the last 10 years.

Maintain current practice for setting TACs and TABs. Spatial aspects need to be incorporated in OMP if model results justify. Analyse trends in effort.

b Anchovy 2,3 Moderate 6


Relevant data are included in either or both the operating models used for OMP testing, or used as inputs to the OMP itself. The OMP TAC outputs have essentially been implemented without change for the last 10 years.

Maintain current practice for setting TACs and TABs. Spatial aspects could be incorporated in OMP in the future depending on model results. Analyse trends in effort.


Activities towards implementation (e.g. identification of appropriate management actions)

To date only a precautionary catch limit (never reached) of 100 000 t has applied. Current studies underway which will advise on the need to change management advice.

Possible revision of management approach following assessment.

2.3 All fishing mortality including bycatch and discarding is adequately incorporated into stock assessment models Small Pelagic SWG/RMWG


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a Sardine 7,8,9 High 6


Additional mortality is taken into account for both the operating models and the OMP formulae for sardine. Robustness to plausible levels for discarding is checked.

Maintain current practice.

b Anchovy 13 Low 6


Additional mortality is taken into account for both the operating models and the OMP formulae for anchovy. Robustness to plausible levels for discarding is checked.




Red eye stock assessment and management has been identified as a priority but not as yet initiated.

Initiate a red eye stock assessment.

2.4 The spatial distribution (incl. transboundary distribution) is adequately incorporated into stock assessment or other management advice

There are concerns about the lack of stakeholder consultation in the development of offshore MPAs and the National protected area expansion strategy.

Small Pelagic SWG/RMWG

a Sardine 3,4 High 4


The resources are all managed as single stocks. Incorporation of spatial aspects into model is being investigated.

Maintain current approach, unless (for sardine) two stock model under investigation leads to alternative suggestions (multi stock management).


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b Anchovy 3,14 Moderate 6


The resources are all managed as single stocks. Maintain current approach.



The resources are all managed as single stocks. Maintain current approach.

2.5 The stock identity and/or genetics is incorporated into stock assessment models or other management advise Small Pelagic SWG/RMWG

a Sardine 2,11 Moderate 4


The resources are all managed as single stocks. Genetic analyses are underway. Morphometrics project (MSc - Grea Wessels) underway; otolith microchemistry project (D. Durholtz) underway.

Maintain current approach, unless (for sardine) two stock model under investigation leads to alternative suggestions. Awaiting results of projects currently underway.

b Anchovy 2 Moderate 4


The resources are all managed as single stocks. Genetic analyses are underway.

Maintain current approach. Awaiting results of projects currently underway.



The resources are all managed as single stocks. Genetic analyses are underway.

Maintain current approach. Awaiting results of projects currently underway.


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2.6 Appropriate management actions, e.g. gear restrictions, closed areas/seasons etc., have been identified and tested and are supported by stakeholders. Small Pelagic SWG/RMWG and EAF SWG

a a) Horse mackerel 21,22 High 4 Stakeholder support and input

Upper precautionary catch limit in place; catches are monitored by the industry and 7 day areas closed by grid block.


b b) Linefish 24 Moderate 4 Stakeholder support and input

Not allowed to target, but any catches declared and forfeited to MCM.


c c) Chokka 26 Low 1 No consideration of management actions

Not allowed to target, landings must be declared.

Maintain current practice. Assess extent of chokka bycatch by pelagic vessels.

Other bycatch species that, based on existing understanding, are unlikely to be vulnerable to the current level of exploitation (Management objective: keep a watching brief = Type C species; Note that no specific management is required until threshold is exceeded; then species becomes a type B)

2.8 Monitoring in place and relevant indicators/thresholds are developed for adaptive management Small Pelagic SWG/RMWG and EAF SWG

a a) Lantern fish& Light fish 20 Low 2

Intention to develop monitoring programme

Small bycatch; populations are estimated to be large.

None required at this stage. Time series estimates could be derived in the future.

b b) Chub mackerel 23 Low 2 Intention to develop monitoring programme

Results from demersal and acoustic surveys have been collated. 7 day grid closure regulation in place.

Proposal to assess chub mackerel through dedicated survey may be developed.


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c c) Jellyfish 28 Low Not priority Group did not consider this a sufficient priority to require a management response.

d d) Gobies 29 Low Not priority Group did not consider this a sufficient priority to require a management response.

e e) Seals 30 Low 4.5

Monitoring programme producing preliminary data, but no analysis / Monitoring programme addresses basic needs and is producing preliminary results

Appropriate monitoring is in place. Seals and Seabirds Protection Act, which is referred to in the permit conditions prohibits the killing of seals.



2.9


Not priority

No management at present. Group did not consider this a sufficient priority to require a management response.

Awaiting outcomes of preliminary study referred to in objective 9.

Small Pelagic SWG/RMWG and EAF SWG


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2.10


31,32,33 Extreme 5


Two year closed areas around Dassen and St Croix - Feasibility study to enable the detection of an effect of closed areas for penguins is underway; modelling functional relationships between penguins and pelagic fish biomass underway. Some preliminary simulations on linking pelagic penguin models to the OMP.

Review outcome of closed area experiments. Finalize analyses of penguin pelagic fish model to allow for the incorporation into the OMP.


2.11

The biomass needed to ensure stability in the ecosystem has been quantified and the ecosystem impacts of fishing on small pelagic fish has been formally included in management procedures.

31,34 Moderate 1.5

No management actions implemented or strategy developed whatsoever / Some indication of intention to develop a strategy to incorporate parameters into stock assessment models

Models exist but not all results are formally included in management. Regime shift studies have been done. Ecosystem impacts of removing small pelagic fish have been explored using ecological indicators and models.

Models should be extended and alternative approaches of synthesizing information explored. Ways of integrating such results into formal ecosystem management procedures should be explored.


2.12/2.13

Fisheries operations have been amended to mitigate the impacts of diet supplementation of top predators.

35,37 Moderate 1

No management actions implemented or strategy developed whatsoever

Studies linking seal numbers to pelagic fish biomass have been undertaken but the spatial mismatch suggests supplementation is limited.

Given current understanding and logistical limitations, no further steps can be taken in the immediate future.



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2.14

The impact of gear loss and/or ghost fishing including entanglement are included in management procedures

Not priority Group did not consider this a sufficient priority to require a management response.


2.15

Disease related risks (e.g. from imported fish products like bait) are addressed by management. (Added)

10 High 1


No management response at present.

Appropriate mitigation actions to be identified.


2.16

Discarding of pollution (e.g. plastics) is included in management procedures

38, 43 Moderate 5


Permit conditions forbid discarding of plastics or any other pollutant at sea; Implications of discarding of rubbish is highlighted in the WWF Responsible Fisheries training.

Continue WWF Responsible Fisheries training.


Objective 3:




Responsibility

3.1

MCM, as custodian of a common resource (that policy requires to be utilized for the benefit of all South Africans), has a good understanding of the role of the

46,47,48, 49,52,55,56,57,61 Extreme 1.5

No research initiated or needs identified / Research needs/issues have been identified and prioritised

No prioritisation of research needs and no research framework.

Identify research needs and develop a strategy; MCM to identify (contract) social scientists to develop a strategy together with MCM in close collaboration with industry and associations.

Small Pelagic RMWG


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fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

3.2


46,47,57,61 Moderate 1.5

No strategy for action whatsoever / Some indication of intention to develop a strategy

Rights review process is in place, however although policy mentions poverty alleviation there is no clarity on management actions or the role of MCM; rights holders and fishers/skippers frequently have different perspectives and MCM is thinking in terms of rights holders and not fishers; MCM has no platform to engage with fishers and factory workers.

Identify all role players and develop a strategy representing all perspectives (i.e. including fishers, factory workers, companies and communities) and clearly identify MCM's role; identify the current mechanisms, which are not working and develop new ones.

Small Pelagic RMWG

3.3


45,47,49,51,55,56,57,58,60,61 Extreme 2.5

Good understanding of the role this fishery plays in the local economy / Some indication to include this fishery as a component in Development Plans (national or local)

To our knowledge no holistic fisheries considerations are included in the development of IDPs.

Investigate what the appropriate formalised mechanism is to resolve this. An MOU may be useful to clarify the broader responsibilities of national and local governments (as undertaken for aquaculture). Gather baseline information on the local development plans and the inclusion of fishing sector; include UNIONS as stakeholders.

Small Pelagic RMWG


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3.4


45,52,54,57,58,60,61 Extreme 1.5

Capacity needs not understood / Good understanding of the capacity needs

MCM do not have staff who are trained to address socio-economic issues; the economics section does not address socio-economic issues; social science work has been outsourced (e.g. UWC) but there is insufficient in house capacity and understanding. MCM are in the process of investigating their needs for additional social and economic capacity. A business review is currently underway.

Need to build links with other government departments; need a social scientist in MCM who can link between fisheries and social issues; resource management department need to better understand social issues.

Small Pelagic RMWG/senior management

3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MCM and other line ministries (e.g. Ministry of Education, Health etc) & NGOs are established.

52,57 Moderate 3

Ad hoc communication and information exchange takes place

Industry takes care of many of the social issues, e.g. nurses in the companies ensure workers health, unions and local churches play an important role. MCM does not have a formal platform to engage on these issues. There is therefore a need to formalise communication channels; RMWG needs to ensure proper stakeholder involvement.

Communication at senior management is more appropriate than at operational levels; Ad hoc communication may be adequate; assumption to formalise this kind of communications may not be appropriate.

Small Pelagic RMWG


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Objective 4:




Responsibility

4.1 Individual rights are economically viable. 47,55,61 Extreme 1


Reduction in TAC has made this situation worse; Minister has produced a transfer of rights policy which hasn't yet been signed; However there is a process to address the transfer of rights and urgent cases have already been dealt with e.g. Oceana Group consolidation; the group was not sure if the new policy will ensure viability of smaller rights; the small rights holders cannot re-invest. The industry relies on large companies, and this policy aims to keep big companies in order and the industry a float and will not address the viability of individual smaller rights. The OMP is accepted as a further mechanism to address this; Economic forces should self-rectify the situation.

Rights transfer policy needs to be signed off and implemented; Define requirements for new entrants; develop a strategy to address non-viable rights; get better clarity on the requirements for viability.

Small Pelagic RMWG


63 High 5

Performance criteria developed but fishery and/or rightsholders not assessed

Long-term rights were allocated in 2005/6. Process to develop performance criteria is underway. There is a concern from the industry that some criteria may be irrelevant. Performance reviews are planned for every 2 years.

Fishery performance review is in process; ensure the process is completed timely.

Small Pelagic RMWG


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4.3


9,54,55, 56,59 Extreme

1 - Small rights holders;6 - Industry in general

No management actions implemented or strategy developed whatsoever OR Ongoing evaluation of strategy is taking place and the strategy is adjusted accordingly

Management is aimed at stability but questionable if it achieves this, especially with a view to new entrants and small rights holders; the OMP is in place; financial security is not addressed at the level of the individual rights holder specifically. MCM only looks at resource stability, but not explicitly at financial stability; there is an attempt to include economics but economics are not specifically examined. The group acknowledged their lack of economic expertise.

At an industry-wide level the group considered the status quo to be adequate. From smaller rights holder perspective economics need to be examined. The simple relation between counting catch and economic value cannot be assumed (i.e. value added products); additional economic input is required.

Small Pelagic RMWG

4.4

All rights holders have adequate business skills and marketing skills.

5 60% of staff/industry are at required levels

Small rights holders rely on bigger companies to make money; but there may be rights holders who do not make money. Business skills are part of rights allocation criteria; some rights holders use consultants (often ex MCM staff) to do application and financial work); 'adequate' has different meaning for different groups; larger rights holders have adequate skills.

Investigate needs for skill developments, what mechanisms are in place and how this can be improved.

Small Pelagic RMWG


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4.5


55 Extreme 6 80% of staff are at required levels

At RMWG the understanding is very good; however, not all stakeholders would understand the level of discussion at SWG; there are other informal forums where stakeholders engage; a few years ago fishers would not have been involved at all, thus there has been improvement; sea-going fishers seldom receive report back; most stakeholders do not understand the OMP; thus communication needs to be improved.

Ensure all stakeholders have adequate understanding of OMP; Improve communication.

Small Pelagic RMWG

4.6

Effective training mechanisms are in place to provide EAF skills development to relevant members of the industry (e.g. responsible fisheries training courses).

61 Low 4 Less than 50% of staff/industry are at required levels

WWF RFP (Responsible Fisheries Programme) training is underway for this sector; but only 1 course held in Mossel Bay has taken place so far; thus there is a further need for training at a fishers level for the majority of skippers; timing of the training is important (i.e. not during fishing season).

Skippers to attend WWF RFP training.

Small Pelagic RMWG

4.7 The fishery is eco-labelled e.g. MSC 1 No ecolabelling of

this fishery

Fishery is not MSC certified; little interest at present from the industry. Could become an opportunity if demand for eco-labelled aquaculture feed increases. International research underway (Benguela included as a case study) to assess appropriate criteria for certifying small pelagic products.

Need to determine whether there is a demand for eco-labeling.

Small Pelagic RMWG


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4.8

Processes are in place to ensure the traceability of products as desired by the export market (e.g. EU requirements).

??

EU import regulations will come into place on the 1st of January 2010. This will have serious implications for the export of small pelagic products and will require changes on the part of MCM and the industry; Saasa Pheeha has headed up a task group (which has industry representation); the biggest challenge relates to catch documentation; EU requires SA to submit information on responsible individuals and proposed internal process by the 31st of July 2009; However, progress is poor; MCM's communication with external stakeholders has also been poor. Some multi-sectoral discussion has taken place within industry. Poor understanding by MCM senior management of the urgency and ultimate responsibility.

Stakeholder engagement needs to take place. MCM to submit what 'MCM can and can't do' and enquire whether the EU will accept the proposal. A workable system must be in place by 1 January 2010.

Small Pelagic RMWG

4.9


54,57,58,59 Extreme 6

Strategy is being implemented and continuously evaluated and adjusted

A strategy is implemented but not all options are pursued; individual factories develop their own brands; different products are being developed on smaller scale; diversification is not industry wide.

Small Pelagic RMWG


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4.10

There is a clear understanding of the national economic context of the fishery.

9,59 Low 1.5


It is well known that this fishery is the biggest employer and lands the most catch by weight, but insufficient information exists to evaluate trade offs.

Identify and prioritise research needs to understand economic context.

Small Pelagic RMWG

4.11


59,60,61 Low 1 No management strategy whatsoever

MCM are not currently adequately considering economic implications of management.

Develop a strategy to integrate economic implications into fisheries management advice.

Small Pelagic RMWG

Objective 5:




Responsibility

5.1


63,67 High 7

Group meets regularly, actions are followed up on and feedback is given on decisions with explanations

SAPFIA is the recognized industrial body to which most quota holders belong; Fishers are not rights holders and thus not invited to meetings; Other industry associations include: West Coast Fishermen’s association and East Coast fishermen association. No clashes or issues between

Ensure that all stakeholders are represented in some forum.

Small Pelagic RMWG


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groups; Structures in place, but as not everyone belongs to them their ability to effectively communicate to the entire industry is limited. Gaansbaai fishers are quota holders; Fisher association has established a pension fund which is still in place; Self nomination of associations is acceptable to MCM small pelagic management so there is no need for the formal recognition process.

5.2

Effective participatory management forums (e.g. Working Groups) are functioning.

67,70,73,74,79 Extreme 7


Good progress since ERA in 2005, RMWG running well; Craig Smith is the chair.

Maintain current practice. Small Pelagic RMWG

5.3


62,63,72,73,79,79 Extreme 7

All of above attend meetings regularly and broader stakeholder communication occurs (e.g. roadshows, public meetings etc)

Marked lack of other IAPs, e.g. provincial conservation authorities in WGs, Cape Nature involvement ensured via Biodiversity Working group.

Possibly invite IAPs. Small Pelagic RMWG


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5.4


50,70 Moderate 7

Regular meetings, a record of decisions and actions are taken, followed up and fed back to relevant individuals

Good and regular communication with Customs and NRCS; some others are dealt with more indirectly or ad hoc; if necessary and appropriate the process could be formalised.

Small Pelagic RMWG /senior management

5.5


64,65,66, 67,69, 74 Moderate 6.5

Regular meetings, a record of decisions and actions are taken / Regular meetings, a record of decisions and actions are taken, followed up and fed back to relevant individuals

Compliance staff seldom attend meetings. Written records of meetings are not always accessible.

Improve communication with compliance; ensure records of decision are easily accessible to stakeholders.

Small Pelagic RMWG /senior management

5.6


64,65,66, 67,69,74 Moderate 6.5

Regular meetings, a record of decisions and actions are taken / Regular meetings, a record of decisions and actions are taken, followed up and fed back to relevant individuals

Compliance do not always attend, some documentation on meetings are filed in the MCM library; access is allowed on application.

Improve communication with compliance, written records are not always accessible thus access needs to be improved.

Small Pelagic RMWG /operational management


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5.7 Regional co-operation is operational and has been institutionalized (e.g. BCC) Small Pelagic SWG/RMWG

a a) BCC 53 Negligible 4 Information is shared between countries

Fishers are worried about Namibians fishing in SA waters; however, this is likely to refer to a particular incident; regional workshops are being run on sardine between Angola, Namibia and SA.

Continue current research developing relationships between neighbouring countries and implementing proposed projects under BCC.


Objective 6:




Responsibility

6.1

Sector management plans which incorporate EAF considerations for all three dimensions of EAF are in place and peer reviewed.

70 Moderate 1 No management plan

There is no formal management plan that addresses and incorporates EAF. There is a framework for an overarching sector management plan for all fisheries (strategy plan). MCM is now populating the plan. It is not yet near completion, but ecological EAF considerations are taken into account. There is however a gap in the social aspect of the management plan. There is an OMP in place for this fishery. The industry is not very concerned because there is good management and research in place. This need has largely been addressed through the filling of vacant posts.

Finalise the management plan and implement it. There is a process in place to achieve this by March 2010.

Small Pelagic RMWG


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6.2 All relevant National Plans of Actions have been developed and implemented. Small Pelagic RMWG; senior management

a IUU NPOA ? 2

There is some indication of intention to develop a NPOA

There isn't an IUU NPOA currently. There is intention to develop one, however, there is a lack of clarity over who should lead the process i.e. compliance (MSC) or resource management. There is some work to combat IUU fishing in this sector. There is an agreement within MCM that IUU fishing is an issue needing attention.

Assign responsibility to lead on developing the NPOA-IUU within MCM. Develop the IUU NPOA.

b Capacity NPOA 52 Moderate 2.5

There is some indication of intention to develop a NPOA /Stakeholder meetings have been held

Steps have been taken internally to address this. No formal stakeholder meetings have been held yet. There are no barriers to getting this off the ground as it has been identified that resource management will take responsibility for this.

Initiate stakeholder meetings. Begin process and draft an NPOA. Tighten up on deadlines (2010, 2011).

Objective 7:




Responsibility


Pg 239




7.1

Appropriate regulatory mechanisms exist and adequate follow-through provide effective dis-incentive for non-compliance.

64,65,66 Moderate 6 Adequate penalty, but no follow through

Nosipho monitors are in place, and functional. 64: There was evidence of illegal dumping, analyses were done, and there is some consideration of it in the OMP. There is relatively good compliance to EAF considerations. In terms of all transgression, dumping is not 100% well regulated (because it is difficult to monitor and detect), whereas the others (fishing in closed areas etc) are well regulated (VMS). Thus in general compliance is good. Appropriate penalties are in place to support this including good follow-through.

Ideally increasing observer coverage (currently 7%) would be the next step. However, may not be practical (costs would double). Continue skipper training to get buy in and ownership of the resource.


Pg 240




7.2


64,65,66 Low 6

Incentives implemented for all 3 dimensions (i.e. Ecological and Human Wellbeing, Governance)

Note that there are only few incentives that apply in this fishery. There is limited consumer demand for eco-labelled products. Perhaps that demand may exist in the future for fish meal products. Other barriers to voluntary incentives like MSC include (besides consumer demand) include the size of the fishery relative to overseas fisheries e.g. Peru, and low value of product. However, MSC may be an option to reconsider in the future. The industry is complying with IFFO standards and this acts as an incentive. Rights allocation performance review is some incentive but not pressing and not necessarily positive/voluntary incentive. RFP skipper training leads to increased buy-in of regulations and acts as a measure to increase voluntary compliance.

Fishery performance review process is in review. Undertake the performance review (mid 2010). When rights come to the point of renewal, use the performance review MORE in the allocation process. Continue RFP training and ensure more skippers attend.

7.3


64,65,66, 69,77 Moderate


Pg 241




a a) Regular at sea patrols are undertaken

1.5 Not in place / 20% implemented

No MCS present at this workshop. Sea patrols do take place regularly. The lack of MSC attendance and communication is a barrier to addressing this. However, given the land-based controls and VMS this may not be that pertinent to this fishery. Also note that west coast and east coast are different in terms of visible presence of patrols.

Communicate with MCS and get more information.

b

b) Adequate shore based controls are in place (e.g. in harbours, at landing sites etc.)

7 Fully implemented

Every landing gets weighed. Nosipho monitoring is good. Not getting biological data off all these landings, but all landings are weighed and species composition estimated.

c c) The special investigation unit (SIU) functions well

2 20% implemented

The SIU is not pro-active. Very little communication between resource management and SIU. If they were functioning well then there would be better communication and activity. Step chosen based on the lack of info.

Encourage deeper involvement of SIU with resource management, in meetings (RMWG).


Pg 242




d d) Functional VMS system implemented 7 Fully implemented

VMS is included in permit conditions. Funding limits capacity in the Operations Room but due to shift system there is always someone monitoring. Reporting rate is currently 3 hourly. In practice the likelihood of fishing in an MPA in 3 hours is low, thus shorter reporting periods are not necessary.

Not necessary but if desired: Source funding to increase capacity in operations room to improve reporting frequency.

e e) Legal system adequately apprehends offenders

3 40% implemented

Most enforcement takes place out of court i.e. admission of guilt fines and Section 28's). Section 28’s are under-utilized and not working as well as they should. Legal processes in general are undermined by the lack of a green court and the limited understanding of fisheries by judges.

The establishment of a Section 28 committee. The implementation of an environmental/green court.

f f) Regular aerial patrols are undertaken

Not priority

No aerial patrols take place. Some discussions underway in Namibia about getting a plane for aerial surveys.

No actions identified because the group did not feel this is relevant for this sector.


Pg 243




Objective 8:




Responsibility

8.1


70 High 3.5

Number of positions reflects capacity needs / 60% of required positions filled

This is a priority for this sector given its importance to the functioning of the ecosystem. Good research capacity to meet basic needs of the OMP, but still need additional capacity to better understand pelagic ecosystem/EAF components including social and economic aspects of an EAF. Some good capacity exists outside of MCM e.g. within UCT. There is good knowledge but it is a fraction of what is needed.

EAF Scientific working group to prioritise projects. Draft prioritisation process has begun. EAF needs to be more recognized within the staffing structure of MCM. There is a need for an EAF coordinator within MCM.

Senior management

8.2


70 High 4 Less than 50% of staff/industry are at required levels

There are some skills within MCM e.g. ecosystem modelling. The MSc in Applied Marine Science at UCT includes a module on EAF. EAF requires various skills and often a combination of skills. Social elements of an EAF in particular require the development of new skills within MCM. Industry training is currently ongoing including attending WWF EAF training.

Increase specific training to develop socio- economic related skills. Coordinate existing programmes. Train facilitators within MCM to drive the ERA reviews to ensure the long-term sustainability and entrench these processes.

Senior management


Pg 244




8.3


70 High 2 Good understanding of funding needs

MCM knows there is a need to get funding to address insufficient capacity. There is a good understanding of funding requirements. The prioritisation of projects first has to be done before can decide on to what extent the funding requirements are met.

Finalise the prioritisation of projects and source funding.

Senior management

8.4

MCM has adequate capacity to advise fisheries management decisions.

70 High 3.5

Number of positions reflects capacity needs / 60% of required positions filled

There is a need for additional capacity to better understand pelagic ecosystems/EAF components including social and economic aspects of an EAF.

EAF Scientific working group to prioritise projects. Draft prioritisation process has begun. EAF needs to be more recognised within the staffing structure of MCM. There is a need for an EAF coordinator within MCM.

Senior management

8.5

MCM has the necessary skills to support EAF management i.e. the technical expertise which allows for the identification of the appropriate management tools (e.g. closed area/season, quota, gear restriction).

70 High 4 Less than 50% of staff/industry are at required levels

The group felt that MCM does have the necessary skills to implement an EAF. WGs have gained experience in EAF issues and awareness has grown. MCM staff obtain informal training on EAF issues through meetings and EAF workshops e.g. ERAs and reviews.

Send MCM staff on targeted EAF skills development courses. Increase MCM attendance at ERA workshops.

Senior management


Pg 245




8.6

MCM has funding to facilitate adequate capacity, equipment and skills for implementing management decisions.

70 High 5 65% of required funding obtained

MCM do not have adequate funding. However, MCM have been able to implement management decisions on available funding.

There is a need for funding to employ field station personnel.

Senior management

8.7 There is adequate capacity to address compliance issues.

65,66 Moderate 5 75% of required positions filled

There are compliance staff at all small pelagic landing points. Therefore there is sufficient capacity to address compliance issues. Additional capacity is provided through Nosipho monitors. However, Illegal dumping issue cannot be addressed by monitors.

Fill vacant posts. Senior management

8.8

The compliance section has the necessary skills to implement an EAF (including a good understanding of the regulations, the appropriate penalties and evidence collection).

65,66 Moderate 3

Mechanisms/opportunities for skills development in place and/or specific courses being developed

Many compliance officers have attended the WWF Responsible Fisheries Training course on an EAF. For many this is the only training they receive before going out to enforce the law. Compliance does have a training officer. TRAFFIC does some training for compliance. Potential barriers for compliance skills development is the lack of funding.

Management could attend the WWF RFP training. MCM to encourage compliance to attend working group meetings and ERA workshops. Encourage compliance management to fully support the implementation of an EAF. Compliance training officer to develop a skills development programme to ensure the long-term viability of training provided by NGOs and to draw on in-house expertise within MCM.

Senior management


Pg 246




8.9

There is adequate funding to facilitate capacity, equipment and skills for compliance.

65,66 Extreme 2 Good understanding of funding needs

Insufficient funding exists particular for training of compliance staff.

Prioritise funding available for developing capacity and skills.

Senior management

8.10

Employment equity within MCM according to transformation goals has been achieved.

5.5 65 - 80% of the employment equity goals are met

On average approximately 75% of the transformation goal has been achieve. In senior management, compliance and resource management about 80% of the goal has been met. However, research is lower.

Strive to achieve the target. Senior management

Objective 9:




Responsibility

9.1


69,76 Moderate 6

Reliable data management procedures in place to ensure that data is up to date and verified

Training programmes are in place, but not completely adequate. Corruption is an issue. Land-based information is collected by monitors whereas sea based information is collected by observers. There are some data quality processes in place, the data is considered representative and it is used in stock assessment. However, data are not readily available.

Enhance training; implement efficient data quality control procedures; check data quality from individual observers; improve data accessibility.

Small Pelagic RMWG


Pg 247




9.2


69,76 Moderate 6


There is a system in place to collate logbook data, but feedback is limited between MCM and skippers who record the information. An explanation on how to fill in logbooks and how the information is used is included in the WWF RFP training. Data is not readily available.

Improve data access. Continue WWF training.

Small Pelagic RMWG

9.3


69,76 Moderate 6


Monitors are susceptible to corruption; landings data is not always accurate (individual cases only).

Continue WWF training; ensure the data management system is able to pick up data anomalies.

Small Pelagic RMWG

9.4


69,76,77 Moderate 3

Current data management system only incorporates single species data or development is incomplete

A central data management approach is under development. However, there is a need for a central data manager. Catch data is good but a shortfall is that environmental data cannot be linked.

Centralise data and employ a data manager.

Small Pelagic RMWG

9.5


47,55,56, Extreme 1 No electronic data management system in place

There is currently no data management system for socio-economic data.

Some information will be collated during the fishery performance review. Establish data needs for socio-economic research under objective 3. Develop a data management system.

Small Pelagic RMWG


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9.6

Electronic data management systems (operational data) are in place.

67,69 Moderate 6

Database is regularly updated AND mechanisms are in place to ensure adequate independent verification

VMS data is difficult to access. Improve accessibility. Small Pelagic RMWG

Objective 10:




Responsibility

10.1


70 Moderate 5


There is a good understanding of the direct impacts of other fisheries although it is considered and indirect impacts are poorly understood. There is interaction between small pelagics and the horse mackerel mid water trawl fishery. Data collection is underway to address this.

Improve our understanding of the indirect impacts of other fisheries better.

Small Pelagic SWG

10.2


82,81 Extreme 3 Research to address basic needs is underway

There is limited understanding of the effect of climate change on small pelagic stocks. Research has been initiated to address this need. Spatial management is a potential way to address external ecological changes.

Continue research. Analyse preliminary data. Continue to make use of long term data sets to gain a better understanding.

Small Pelagic SWG


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10.3


83 Low 1 No research initiated or needs identified

There is a poor understanding of the effect of other industries. However, it is not considered a priority.

Not considered a priority at present.

Small Pelagic SWG

10.4


88,89,90,91 Extreme 6

There is a good understanding within industry of economic drivers as many products are export based (therefore affected directly by these factors and therefore well understood). Might not be good understanding of economic drivers within MCM.

Continue to monitor. Small Pelagic SWG

10.5


85,86,87 Extreme 3

Industry has a good understanding of social drivers because it is important for health programmes etc. No research on this subject is underway at MCM. EEU is starting some projects on social factors within fisheries (not specifically on small pelagics).

Design and implement a research programme to mitigate or minimise negative impacts arising from social factors. Collaborate with the department of health with regards to HIV/Aids.

Small Pelagic SWG


Pg 250


NAME AFFILIATION Awie Badenhorst SA Pelagic Fish Industry Assoc. (SAPFIA) Janet Coetzee MCM, Research Mike Copeland Oceana (SAPFIA) Rob Crawford MCM, Research Gert Du Plessis Pioneer fishing (SAPFIA) J.W.H. (Doepie) Du Plessis SA Small Quota Holders Assoc. Deon Durholtz MCM, Research Tracey Fairweather MCM, Research Johan de Goede MCM, Resource Management Astrid Jarre UCT – MARE Carl van der Lingen MCM, Research Granville Louw MCM, Research Newi Makhado MCM, Research Coleen Moloney UCT - MARE Barbara Paterson UCT - MARE Samantha Peterson WWF Kim Prochazka MCM, Research Rennison Ruwa Kenya Lynne Shannon UCT - MARE Charlie Smit Weskus Pelagiese Vissersvereniging Craig Smith MCM, Resource Management Claudia Thomas Mozambique Nandipah Twatwa MCM, Research Dan de Villiers SAPFIA Janine Basson WWF Nicola Okes WWF


Citation: Petersen SL, Okes N, Basson J, Paterson B and A Cockcroft. 2010. Ecological Risk Assessment (ERA) Review for the South African West Coast Rock Lobster Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

Pg 251

Ecological Risk Assessment Review for the South African West Coast Rock Lobster Fishery

Compiled by Samantha Petersen, Nicola Okes, Janine Basson,

Barbara Paterson and Andy Cockcroft 1. Introduction

West Coast rock lobster Jasus lalandii are distributed from just north of Walvis Bay, Namibia, to near East London on the east coast of South Africa. Commercial exploitation started in the nineteenth century and expanded in the early twentieth century. Exploitation is conducted by three main sectors: full commercial, limited commercial (small-scale) and recreational fishers. As of the 2007/2008 season, the fishery is valued at R359.5 million. The Ecological Risk Assessment (ERA) workshop for the South African West Coast Rock Lobster fishery took place in Cape Town, South Africa, from the 30th of May to the 3rd of June 2005. A total of 71 issues were identified for this fishery by workshop participants, of which 52 (73%) were rated as being of ‘Moderate’ risk or higher. 21% of issues identified fell within the ‘Ecological Wellbeing’ component; the trophic influences of rock lobster on urchins and abalone was the only issue that was deemed to be of ‘Extreme’ risk. 22% of issues identified fell within the ‘Human Wellbeing’ component, and were mostly related to the smaller commercial operators (the lack of a coordinated marketing ability hence decreased profitability for small quota holders). 57% of issues identified fell within the ‘Ability to Achieve’ component (poor coordination between science and management within DEAT). The ERA review workshop for this fishery took place at Marine and Coastal Management’s (MCM) Research Aquarium in Cape Town, South Africa, on the 22nd and 23rd of July 2009. The workshop was hosted by MCM and facilitated by Dr. Samantha Petersen, Nicola Okes and Janine Basson of WWF-South Africa, and Dr Barbara Paterson of the MA-RE Institute, University of Cape Town. After wide distribution of invitations, the workshop was attended by a total of 19 participants. Attendees were from MCM (Resource management, Compliance and Research), the fishing industry and an NGO (Masifundise). This allowed for an informative debate. In addition, two colleagues from Mozambique and Kenya respectively attended the workshop, sponsored by the FAO, through the EAF Nansen project to facilitate information sharing and stimulate the implementation of an EAF in the region. Please see Annex 1 for a complete list of attendees.


Pg 252

2. Results


The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in Table 1. Objective 1: The managing authority has a good understanding of the ecosystem impacts of the South African West Coast Rock Lobster fishery including target, non-target and general ecosystem impacts

The life history parameters of Rock Lobster that are required for input into the stock assessment model are generally well-understood, excluding factors affecting recruitment. A key next step to addressing these gaps is to establish systematic monitoring of settlement with a view to establishing a recruitment index. Adequate monitoring of all other life history parameters is already in place. Currently, there is a fair understanding of the recreational fishery, monitored through telephonic surveys. However, ground-truthing of these results should be done using other sources of data e.g. data from the boat club and inspectorate figures. The changes in the levels of poaching over recent times are not adequately understood, which is seen as an extreme threat in the sustainability of the fishery. The southward shift of the Rock Lobster is currently kept under review through inspection of catches, trends in CPUE and through inshore FIMS surveys and offshore deepwater surveys east of Hangklip. The gear used in this fishery is relatively selective and as a result there are not high risk bycatch concerns. Observers, fisheries surveys and FIMS currently collect data on bycatch. The importance of Rock Lobster in the diet of seals and sharks is unclear but unlikely to be important. However, Rock Lobsters constitute an important component of the diet of Bank Cormorants Phalacrocorax neglectus. The large decreases in the numbers of Bank Cormorants on the west coast may be related to a decreased availability of Rock Lobster and thus the monitoring of Bank Cormorants and their diets needs to continue. Assessments have been made of benthic community composition in areas with high density and low density populations of Rock Lobster, and of the diets of the Rock Lobster in these areas; models are being developed on these multi-species interactions and these results should be presented to the Scientific Working Group (SWG) for possible inclusion into management recommendations. Some gear entanglement by whales has been recorded. There is a good understanding of how animals get entangled but many entanglements are not reported or go unnoticed. A minimum proportion of the number of females with entanglements scars is known and remained constant between 1979 and 1996.


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Objective 2: Ecosystem impacts of fisheries are included into management advice

The available data on Rock Lobster life history are taken into account in tuning the operating models used for the OMP (Operational Management Procedure). There is general satisfaction with the mechanism by which the TAC is currently being set; however, allocations must take cognisance of resource availability in area-bound sectors i.e. the nearshore sector. Trends in poaching have potentially been inadequately taken into account in the robustness trend and, if quantification of poaching indicates a substantial change, then this must be taken account of in appropriate management actions. Generally though, current management of the Rock Lobster fishery can be maintained, unless results from genetic studies (which are currently underway) suggest a finer scale approach is needed. Management does not currently manage bycatch in the Rock Lobster fishery as this is not seen as a high priority. However, analysis of observer bycatch data may well show a need for management to institute restrictions. As Rock Lobsters constitute an important component in the diet of Bank Cormorants, this relationship should be explored by the SWG and possible management measures established. Currently, no management measures are in place to mitigate for the effects of fishing on the general ecosystem. However, appropriate management actions will be identified once the results of the abovementioned study (assessing the effects of high and low densities of Rock Lobster on the community composition, and of the diets of lobsters in these areas) have been considered by the SWG and deemed necessary. Some management of whale entanglement with Rock Lobster gear is in place including representation of the South African Whale Disentanglement Network (SAWDN) on the WCRL Management WG meetings. Mitigation and reporting measures have been developed but have not adequately been adopted by the industry. Given the overlap in the distributions of WCRL and whales, greater priority should be considered for this issue. Objective 3: The social wellbeing of dependent fishing communities is accounted for in management advice

The group noted that issues of poverty alleviation were taken into account in the allocation of rights and that there is a rights allocation review process. Nonetheless, there is a need to gain clarity on the meaning of poverty alleviation in fisheries and MCMs role therein. MCM are in the process of enhancing socio-economic capacity through establishing a socio-economic unit within the organisation. The appropriate mechanism to address socio-economic issues at the community scale may be the municipalities’ Integrated Development Plans (IDPs). However, at present there seems to be no holistic consideration of fisheries in these IDPs. In order to address this shortcoming MCM should investigate appropriate mechanisms for collaboration with Municipalities. It was further stressed that there is a need to incorporate the developmental imperatives within fisheries policies.


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Objective 4: The economic wellbeing of the fishing industry is maintained

The group felt that issues of rights allocation and viability of individual rights were adequately addressed from the perspective of the commercial sector. However, the lack of definition of what constitutes a viable quota in different rights holders’ contexts has resulted in the allocation of some sub viable long-term rights (15 years). There is thus an urgent need to conduct a review that will allow assessment of the way forward to address this concern. It was also pointed out that some rights holders don’t have access to capital and that there is a need to investigate options to overcome this. In addition basic business skills training for new entrants/small scale rights holders should be initiated either through Government or the NGO sector. It was further stressed that although the commercial sector of this fishery has a solid long-term economic strategy, MCMs’ understanding of the larger economic context needs to be improved. There should also be a willingness to pro-actively support industry to make this sector internationally competitive. Such pro-active support will require improved communication between resource managers and the fishing industry and devolution of power within departments to allow timely service delivery. Objective 5: The managing authority has transparent and participatory management structures that ensures good communication and information sharing locally and regionally

In terms of industry associations the challenge lies in the nearshore sector. Although some structures are in place many rights holders are unwilling to pay the required levies and fees. This resistance shows that not all rights holders understand how this body represents their interests. At community level there is confusion between Sea Management and the WCRL Association because community members lack the knowledge or understanding to make the distinction between the two bodies. Since Government has a responsibility to encourage representative and cohesive structures an educational programme needs to be initiated to provide all rights holders with the necessary skills. The SWG is functioning well, but the Resource Management Working Group (RMWG) does not have good participation, as many representatives, especially Compliance, seldom attend these meetings. The attendance of NGOs is being debated. MCM’s economists do not participate on either working group. It was stressed that working groups can only be effective if there is consistent attendance, thus appointments should be for a minimum time period. It was further suggested to formalise the RMWG using the SWG template so that within MCM RMWG attendance becomes a core function with a clear mandate. Objective 6: Management plans incorporate EAF considerations

There is currently no management plan in place for this fishery. At present some progress has been made to develop a framework for an overarching fisheries management plan. However, an important next step is to include social and economic considerations into this framework and plan.


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Two National Plans of Action (NPOA) are relevant to this fishery namely, NPOA-IUU and NPOA-Capacity. Neither NPOA has been developed. The WCRL industry sponsored a workshop on compliance in the industry. This report should feed into the development of the NPOA-IUU. Furthermore, given that the fishery is managed by a TAC, the workshop concluded that there is limited need for capacity management. However, this could be reconsidered in the future. Objective 7: Compliance to regulations reduces ecosystem impacts of fisheries

The degree of compliance to regulations is unknown as are conviction rates for recorded transgressions. However, compliance of the recreational and small scale sector is a major concern. A burning issue to be addressed is the lack of appropriate follow through and inadequate penalties. Lack of funding hinders this as fuel costs prevent regular sea patrols in the nearshore region. Potential next steps include the effective functioning of the Section 28 Committee and using the Section 28 tool to its full potential. A further step would be to re-instate the Green Courts and provide specialist workshops for those in the judiciary. Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

The group felt that overall there was sufficient skills and capacity to implement an EAF within resource management and research. However, there is currently no capacity to address the social and economic aspects of an EAF. The Business Review Commission is currently assessing this need which should be completed within the next 18 months. A mechanism to build the necessary skills is to capitalize on the existing expertise within MCM. ERA workshops provide an additional opportunity for stakeholders to gain a broader understanding of EAF issues. The compliance section identified a need for increased training in subjects such as fish identification, biology, seasons, size limits and rationale behind regulations. The WWF Responsible Fisheries Programme has developed training to facilitate information sharing and the development of skills to implement an EAF on the ground. This training has been focused on the offshore industrial sector, but the workshop considered it worthwhile for this course to be adapted for the inshore sector. Funding remains a limiting factor and additional sources of funding should be sought and partnerships developed to support EAF activities. Objective 9: Good data procedures exist to support EAF implementation

The group agreed that good data and data procedures are in place and functioning in order to support an EAF. Improved data system (MAST), road-shows that provide training on rock lobster catch returns, and liaising with industry has resulted in a well functioning system which has resulted in good information being received from the industry and is being used in the catch reconciliation. An important improvement would be increased observer coverage


Pg 256

on the rock lobster deck boats. Observer coverage has increased from 8% to 10-15% in the last two years. Logbook and landing declaration information is considered good and is routinely used to inform management decisions. The annual road shows provide a mechanism to communicate feedback to stakeholders once a year prior to the commencement of the season. Furthermore, the data management system, MAST which came into effect in 2006 is considered an adequate system. However, at present this system does not take social and economic data into account. Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc)

The impacts of climate change on the fishery are generally not well understood as the links between climate change and ecological processes are not known. There is a lack of understanding around mining related impacts, but the barrier to progress in this regard is the difficulty to conduct research (i.e. access) and also the scientific inability to isolate cause and effect within the study. Although no direct research is being done to evaluate the many external impacts, there is a lot of institutional information among the industry on economic drivers for example. The effect of external social drivers such as HIV/AIDs is poorly understood in this fishery and has been highlighted as a need.


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Objective 1:




Responsibility


1.1 Good understanding of life history parameters that enable adequate stock assessment (e.g. growth rate, sex ratio, natural mortality, age length key, age at maturity, factors affecting recruitment). WCRL SWG

a Natural mortality Low 5


Natural mortality is not that well known, but OMP robustness tests do not suggest better information to be a critical requirement.

No priority next steps identified.

b Age length key Moderate 5


Average growth rates are reasonably well known for males, but poorly for females.



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c Age at Maturity Low 7

Research is producing comprehensive results beyond priority needs and are regularly published in peer reviewed reports/papers

Age at maturity is adequately known.


d Factors affecting recruitment Low 3

Research to address basic needs is underway

Factors affecting recruitment are scarcely known, as typical of other resources. A key uncertainty is why recruitment overall is now much lower than it must have been to yield the high catches during the mining out of the resource during the first half of the 20th century. A project was initiated in Saldanha Bay on recruitment settlement of pueruli, using the oyster bags as settlement proxy site. The amount of recruitment was recorded at one site, but project has lost momentum (Felicia Keulder - leaving soon).

Establish systematic monitoring of settlement with a view to provide a recruitment index.


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e Growth rate 1 High 6

Research is producing comprehensive results beyond priority needs

Annual variation is monitored through tagging, and is a key input to the OMP. There is a database in place (annual growth rate). Possible adjustments needed to correct for time-at-large effects are being checked.

Monitoring must continue. Biochemical analyses are being pursued to compare sites of slow and fast growth rates to try to determine causative factors.

f Sex ratio and size distribution 4, 5 High 6


Adequate routine monitoring underway. Monitoring must continue.

g Abundance 3 Moderate 5


Abundance is monitored through annual updates to CPUE and FIMS, but greater precision is highly desirable. Inshore and offshore FIMS is continuing and in addition a deepwater survey was initiated to survey RL east of Hangklip.

Improvements of CPUE standardization through recording catch data on a finer spatial scale. Improvement of FIMS precision through less intensive surveys of greater frequency, and possible formal incorporation of an inshore component is under consideration. Standardisation of abundance indices through taking account of environmental covariates is being pursued. Inshore FIMS must continue.


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1.2

Good understanding of the fisheries dependent parameters that enable adequate stock assessment (e.g. fishing mortality, fishing effort)

High 4.5

Preliminary data available, but not yet analysed/ Research adequately addresses priority needs

Legal effort is monitored for the commercial fishery. The recreational fishery is monitored by use of telephone surveys but there is concern about the validity of this information.

Re-analysis of past recreational survey data for consistency over time, and improvements to survey design are required. Groundtruthing of recreational telephone survey results must be undertaken. Other sources of recreational data (e.g. boat club, inspectorate figures) should be collected and collated - this data could be used to supplement telephonic survey data.

WCRL SWG

1.3 All fishing mortality including bycatch, poaching and discarding, handling associated mortality is adequately understood. WCRL SWG

a Poaching is adequately understood

8 High 2


Poaching is not adequately understood i.e. there is little knowledge of how much it has changed in recent times relative to historic estimates.

Continue monitoring. Better estimates of true catches under interim relief and of removals due to poaching, are priorities.

b

Fishing mortality including bycatch, discarding and handling associated mortality is adequately understood.

8 Low 5


Estimates of removals are routinely monitored in the commercial fishery and through telephone survey for recreational fishers. Bycatch in the RL fishery is well understood.

Increases in poaching, indicated by anecdotal reports and crime statistics, need to be quantified.


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1.4 The spatial distribution (including transboundary distribution) is adequately understood WCRL SWG

a Southward shift 2 High 5


Situation kept under review through inspection of catch, CPUE trends and FIMS (inshore) and deepwater surveys (offshore) in the east of Hangklip area. PhD currently underway to address ecosystem effects of the shift (L. Blamey).

Continue existing monitoring and adjust CPUE standardization for Area 8 if there is a change. Continue scientific surveys recently instituted to monitor the extent of resource extension east of Hangklip (i.e. the account for changes should be handled empirically rather than attempting to determine causative factors).

b Shared stock with Namibia 6 Low 5


Not formally considered. It has been identified by the BCC as a potentially shared stock, preliminary genetic work has been completed and results indicate that the larval stock is shared.

No plans as it is not seen as a priority, given that the resource is currently being managed as five spatially distinguished management units which are assessed separately, and that the contribution of the most northern area to the overall annual catch is very small.


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Low 4 Preliminary data available, but not yet analysed

On the basis of differences in dynamics for different areas, the resource is managed as five spatially distinguished management units. There are current collaborations between Namibia and SA on genetics.

Some genetic work is underway to investigate whether there is spatial structure at a finer scale than the present management units. Next phase of Namibia and South Africa collaborations is to look at micro-satellite DNA. Research on larval genetics is required to determine to what extent recruitment depends on local stocks.

WCRL SWG


1.6 The impacts of the fishery on bycatch or vulnerable species have been quantified WCRL SWG/EAF SWG

a a) Kingklip, octopus, hottentot and other linefish (retained)

9 Low 4 Preliminary data available, but not yet analysed

Observers currently collect data on bycatch (Felicia Keulder). Surveys and FIMS also collect bycatch data.

Bycatch data should be analysed to confirm whether this should remain a low priority.

b b) Bycatch of 27 species, including cat sharks (non-retained)

10,56 Moderate 4 Preliminary data available, but not yet analysed

Observers currently collect data on bycatch (Felicia Keulder). Surveys and FIMS also collect bycatch data.

Bycatch data should be analysed to confirm whether current priority is valid.


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1.8

Fishing impacts on marine habitats and ecologically important areas e.g. corals, spawning areas, nursery areas, predator foraging areas, have been assessed and quantified.

14 Moderate 2


No work to date.

Honours/Masters project could be initiated to resolve issue 14 (impact on benthic biota), but is not an especially high priority.

WCRL SWG/EAF SWG

1.9/…


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1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on WCRL.

High 5


Rock Lobster is an important component of the diet of Bank Cormorants. There have been large decreases of Bank Cormorants on the west coast that may be related to a decreased availability of Rock Lobster (see publications: Crawford, R. J. M., Cockroft, A. C., Dyer, B. M. & Upfold, L. 2008. Divergent trends in Bank Cormorants Phalacrocorax neglectus breeding in South Africa’s Western Cape consistent with a distributional shift of Rock Lobsters Jasus lalandii. African Journal of Marine Science 30: 161–166). The importance of RL in the diet of seals and sharks is unclear but unlikely to be important. The importance of RL for juvenile seals needs to be clarified. Seal depredation has un-quantified impacts on the RL population.

Continue monitoring of Bank Cormorants and their diet.


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1.10

There is good understanding of the diet and role of WCRL as secondary consumers in the trophic web.

11 Extreme 5


Assessments have been made of community composition in areas with high density and low density populations, and of the diets of RL in these areas (PhD Laura Blamey). Models are in progress on multi-species interactions. The areas that we do not understand are the ripple effects on algal abundance, particularly of encrusting corallines (which are the settlement sites for abalone recruits).

Consideration of these results by the SWG for incorporation into management recommendations.

WCRL SWG/EAF SWG

1.11


Low 7


Study on offal conducted (Lowenthal et al.).

No next steps necessary for offal.

WCRL SWG/EAF SWG


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1.12

There is good understanding of ecosystem impacts of de-predation by top predators including its impact on the economic viability of the fishery.

Moderate 4 Preliminary data available, but not yet analysed

Steve Kirkman has conducted studies on the diet of seals, but the group is unaware of whether this work shows a significant effect on RL. Seal depredation has an un-quantified impact on the RL population.

See no. 8 for depredation. WCRL SWG/EAF SWG

1.13/…


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1.13 There is a good understanding of gear entanglement.

12, 13 Low 7


Research needs have been identified (especially regarding monitoring gear loss). Mitigation measures have been recommended but are probably not always implemented because it is perceived as taking up too much time or a hassle to tie excess rope up, report lost gear, report entangled whales and stand by entangled animals. There is a good understanding of how animals get entangled but many entanglements are not reported or go unnoticed. A minimum proportion of number of females with entanglements scars is known and remains constant between 1979 and 1996 (Best et al. 2001).

The observer program should incorporate routine observations and reporting of how the gear is deployed, and entanglement events and gear loss reported by skippers and observers. SAWDN needs to put more effort into taking good photo ID pictures and make these available to researchers. Published results (i.e. Best et al. 2001) need to be updated.

WCRL SWG/EAF SWG

Objective 2:




Responsibility


2.1 The relevant life history parameters for WCRL are incorporated into management strategies and appropriate management actions are implemented WCRL SWG/RMWG


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a Natural mortality Low 5


Available data are taken into account in conditioning the operating models used for OMP testing.

The processes for the next four-yearly review of the OMP will shortly be initiated, while the requisite annual routine assessment updates will continue.

b Age length key Moderate 6




c Age at Maturity Low 7

All relevant parameters are addressed by management action and good implementation occurs on the ground



d Factors affecting recruitment Low 1





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e Growth rate 1 High 6


Somatic growth rate is a key annual input to the OMP formula used to determine TAC recommendations.


f Sex ratio and size distribution 4, 5 High 6




g Abundance 3 Moderate 6


Abundance indices are a key annual input to the OMP formula used to determine TAC recommendations.


2.2

All fisheries data are incorporated into management strategies and appropriate management actions are implemented

Extreme 5


Relevant data are included in either the operating models used for OMP testing or used as inputs to the OMP itself. The OMP TAC outputs have essentially been implemented without change for the last 10 years.

Maintain current practice for setting TAC and its spatial distribution. Allocations must take cognisance of resource availability in area-bound sectors i.e. nearshore sector.

WCRL SWG/RMWG


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2.3 All fishing mortality including bycatch, poaching and discarding is adequately incorporated into stock assessment models WCRL SWG/RMWG

a Poaching is adequately understood

8 High 3.5

Responsibility assigned (e.g. relevant researcher, task group constituted, or RMWG etc.)/Activities towards implementation (e.g. identification of appropriate management actions)

Poaching is likely to be inadequately taken into account in the robustness testing of trends in poaching.

If quantification of poaching indicates substantial change, this needs to be taken into account of in management actions.

b

Fishing mortality including bycatch, discarding and handling associated mortality is adequately understood.

42, 45 Low 5


This is done for both the operating models and the OMP formula.

Maintain current practice with some improvements in inputs as per no. 3 above.

2.4

The spatial distribution (including transboundary distribution) is adequately incorporated into stock assessment or other management advise

The resource is managed as five spatially distinguished management units for reasons given under 5 above. RL fishing effort and catch information has been provided for MPA planning.

Maintain current approach, unless genetic results suggest a finer scale.

WCRL SWG/RMWG

a Southward shift 2 High 6



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b Shared stock with Namibia 6 Low 6


Follow up on BCC project.

2.5

The stock identity and/or genetics is incorporated into stock assessment models or other management advice

Low 4


Not currently incorporated because results are still preliminary.

Dependent on results of no. 5. WCRL SWG/RMWG


2.6 Appropriate management actions, e.g. gear restrictions, closed areas/seasons etc., have been identified and tested and are supported by stakeholders

WCRL SWG/RMWG and EAF SWG

a Kingklip, octopus, hottentot and other linefish (retained)

9 Low 5


Permit conditions state that bycatch may not be landed (note: some bycatch is retained and consumed at sea, rather than being released).

Dependent on results of no. 6; unnecessary unless data analyses indicate a change in priorities is required.

b Bycatch of 27 species, including cat sharks (non-retained)

10,56 Moderate 5


Permit conditions state that bycatch may not be landed.

Dependent on results of no. 6; unnecessary unless data analyses indicate a change in priorities is required.


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2.7 Management minimizes bycatch WCRL SWG/RMWG and EAF SWG

a Kingklip, octopus, hottentot and other linefish (retained)

9 Low 5


Current absence of restrictions is appropriate and need not be changed unless results from no. 6 indicate change.

b Bycatch of 27 species, including cat sharks (non-retained)

10,56 Moderate 5


Current absence of restrictions is appropriate and need not be changed unless results from no. 6 indicate change.


2.9

Appropriate management actions, e.g. gear restrictions, closed areas/seasons etc., have been identified and tested and are supported by stakeholders.

14 Moderate 1


Lobster sanctuaries and MPAs preclude possible damage by gear in those areas.

Dependent on results of no. 7. Debate must be opened depending on necessity for gear restrictions.



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2.10


Extreme 3


See no. 8.

The relationship between Bank Cormorants and Rock Lobster and possible management interventions should be explored by the SWG.


2.11


11 (urchin/abalone) Extreme 2

Some indication of intention to develop a strategy to incorporate parameters into stock assessment models

No management measures currently in place to address this.

Awaiting recommendation from SWG (see no. 9).


2.12


Low 6


No mitigation required for supplementary feeding.

Group didn't feel any more management actions are necessary re: supplementary feeding.


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2.13

Fisheries operations have been amended to mitigate the impacts of depredation.

Low 3


No mitigation required for depredation.

No further management actions are necessary.

2.14

The impact of gear entanglement is included in management procedures.

12, 13 Low 4


A representative of the South African Whale Disentanglement Network (SAWDN) participates in the WCRL Management WG meetings. Feedback from the industry has been very limited. Mitigation and reporting measures have been developed but have not adequately been adopted by the industry. There is some support for these processes but is difficult to ascertain given the current observer coverage (~8%), and is voluntary at the moment. Population impacts are low but, given greater overlap of the distribution of RL and Southern Right and Humpback whales and public opinion and animal welfare concerns, the image of the fishing industry is damaged by entanglement events. Given greater overlap of the distributions of RL and whales, greater priority should be considered.

Follow-up meetings and one-on-one interactions with skippers and owners are in the pipeline. Industry cooperation (entanglement mitigation, reporting of gear loss and entanglements and standing by with entangled whales) should be encouraged through programs like the WWF Responsible Fisheries training programme. No program currently exists for inshore fisheries.


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2.16

Discarding of pollution (e.g. plastics) is included in management procedures.

15 Moderate 5

Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc).

In line with MARPOL, no discarding of waste materials should occur, but this is not always the case.

Industry cooperation should be encouraged through programs like the WWF Responsible Fisheries training programme for the offshore fleets. No program currently exists for inshore fisheries. This could be investigated.


Objective 3:




Responsibility


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3.1

MCM, as custodian of a common resource (that policy requires to be utilized for the benefit of all South Africans), has a good understanding of the role of the fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

28,29, 30,31, 66 Moderate 3 Research to address basic needs is underway

WCRL is a high value product as such is not harvested for food security. However, food security has gained a higher profile and some feel that fishing rights are being abused for political gain. There are ad hoc projects initiated and no research has been done to aid our understanding of the role of fisheries management in poverty alleviation. Some research was conducted for the rights allocation process, but very little research towards issues 28-31. We have good research of fisheries biology but we do not have social scientists to conduct social research.

There is a need to define the role of fisheries management in meeting the goal of poverty alleviation and a need to incorporate the developmental imperatives within policies.

WCRL RMWG

3.2


29,30,31 Moderate 6

Ongoing evaluation of strategy is taking place and the strategy is adjusted accordingly

These issues were taken into account in the allocation of rights which are currently under review at present, but there is a distinct lack of capacity building (see no. 33, 34 and 35).

Finalise the "small scale" and "subsistence" policies. There is a need to incorporate the developmental imperatives within these policies.

WCRL RMWG


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3.3


23,25,28,29,30,31 Moderate 1

No understanding of the role this fishery plays in the local economy

To our knowledge no holistic fisheries considerations are included in the development of IDPs. Examples of the social implications of changes in fisheries include doring baai or hondeklip baai which collapsed due to changes in the RL fishery. WCRL will not be relevant to all communities and therefore not all IDP’s. There is currently some ad hoc collaboration between MCM and some municipalities for RL walk outs, these links may be useful.

Investigate what the appropriate formalised mechanism is to resolve this. An MOU may be useful to clarify the broader responsibilities of national and local governments (as undertaken for aquaculture).

WCRL RMWG


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3.4


22,30,31,38 High 2.5

Good understanding of the capacity needs /Number of positions reflects capacity needs

MCM are in the process of investigating their needs for additional social and economic capacity. A business review is currently underway and the location of the unit will be determined (resource management or research), posts will include senior officials i.e. socio-economic director and project manager. There were posts for socio-economists which were never filled (pers. Comm. Andre Share).

Complete business review this financial year (March 2010) and determine composition of the team. Fill posts.

WCRL RMWG/senior management

3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MCM and other line ministries and NGOs are established.

29,30,31 Moderate 3


Informal ad hoc communication takes place. MCM had to develop a social plan when closing the abalone fishery but had no support from Labour. This has had repercussions for the WCRL fishery. There are ministerial level forums where the ministers will raise and discuss issues. There are strong collaborations with NRCS.

MCM to engage with DTI regarding value adding and assisting with developing new fisheries, especially where capital investment is required. Finalise development of MOU with aquaculture. Maintain collaboration with NRCS.

WCRL RMWG


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Objective 4:

The wellbeing of the fishing industry is incorporated into management advise.



Responsibility

4.1 Individual rights are economically viable. 20 Extreme 6


Recommendations made by SWG that a minimum allocation should be 1 ton for inshore sector were ignored and reduced to accommodate more participants (2005). There is no definition of a viable quota; this has resulted in sub viable quotas being allocated through long-term rights allocation (15 years).

A review to allow assessment of the way forward to address this concern is necessary.

WCRL RMWG


24,25,50,51 Extreme 6

Performance criteria developed and fishery and/or rights-holders assessed

There is a rights allocation process and review is currently underway.

Complete review process and implement recommendations.

WCRL RMWG


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4.3


6

Performance criteria developed and fishery and/or rights-holders assessed

Interim relief has not been thought through properly and has had repercussions’ on the WCRL fishery, but there is an OMP and scientific advice to protect the resource. MCM have not been successful in implementing a strategy, which in turn is not successful in addressing the challenges presented through the interim relief. A further challenge is that some rights-holders do not have access to capital.

Finalise the "small scale" policy. Investigate options to address access to capital.

WCRL RMWG

4.4

All new entrants ad rights holders have adequate business skills and marketing skills

19,27 Extreme 1.5

No understanding of skill needs/Good understanding of skill needs

Not all rights-holders are involved in marketing and processing; a single marketing body would be illegal. Catch agreements required of the rights holders tie fishers up for 3-4 years to deliver to processing facility (pers comm. Danie van Zyl) – this should be followed up by MCM. There is a need for financial skills training.

Develop and initiate a basic business skills training course.

WCRL RMWG


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4.5


27 Moderate 5 60% of staff/industry are at required levels

There is a co-management strategy between the commercial industry and MCM. There were road shows regarding sea management (communication body) and permit conditions, thus some level of skills do exist.

Continue interaction with rights-holders and continue training. Ensure that all relevant MCM divisions participate in sea management, as well as other forums such as RMWG to ensure adequate interaction with rights-holders.

WCRL RMWG

4.6


22 Moderate 3.5

Mechanisms/opportunities for skills development in place and/or specific courses being developed/Less than 50% of staff/industry are at required levels

The "safety-at-sea" training is a requirement to go to sea. Basic TAC-related activities are already done at the road show. However, training does not include ecological interactions. The WWF Responsible Fisheries training course could be adapted for WCRL. Entanglements and mitigation thereof is included in the current MCM road shows.

Include WWF "Fishing for the Future" or WWF RFP training in the MCM road shows. Collaborate with WWF towards integrating EAF issues into road show training.

WCRL RMWG

4.7 The fishery is eco-labelled. Not a

priority

The industry has considered MSC certification but since most of the product is exported to the far east where there is little demand for eco-labelled products, little advantage would be gained.

None required.

4.8 Processes are in place to ensure the traceability of

New format


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products as desired by the export market (e.g. EU requirements).

4.9


19 Extreme 7 Strategy has been successful over time

Strategy has been developed over 20 years. There is high diversity of products. The Australian government is very supportive of making their industry competitive; MCM could consider a similar approach. There is a lack of understanding and support in terms of the economics of the industry. There is good communication between industry and MCM on science but less so for management.

Industry would like a closer working relationship with Resource Management in order to support international competitiveness.

WCRL RMWG

4.10


17,18,23, 25,28,29,30,31 High 2


This depends on the sub-sector; MCM has no clear understanding of the economic implications of the interim relief. Also, there is a need to increase the collaboration with industry regarding economic issues.

Improved liaison with industry. Finalise the small scale policy.

WCRL RMWG


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4.11


16, 21,28,30,31 Moderate 3

Structures in place to ensure trans-disciplinary collaboration and stakeholder co-operation (e.g. trans-disciplinary working group or task group)

Some structures are in place e.g. RMWG are in place. MCM could be more pro-active in service delivery to make RL industry more competitive.

Enhance communication between Resource management and Industry; Unit heads must be engaged so that resource management can stay at a global forefront. Devolve power within departments.

WCRL RMWG

Objective 5:




Responsibility


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barriers etc)



5.1


39,52,53,54,59 High 7


There are some industry associations in place, but these are all commercial offshore structures, but the challenge is in addressing the nearshore sector: meetings are taking place but the representativeness is questioned. Finance is an issue; there are levies and costs and a resistance to pay fees. The WCRL RMWG meets regularly but there is constant non-representation of MCS at these meetings; Furthermore, the minutes of these meetings are always late, which is frustrating. Recreational fishers are not part of Sea Management but have their own body. MCM needs the WCRL Association to become more inclusive. There is a need to change perception that this association is not representative. At community level there is confusion between Sea Management and WCRL Association which leads to lack of buy in. Community members lack skills to make the distinction thus there for increased training and awareness.

There should be one national forum, into which regional representation feeds. Establish a recreational forum. Use road shows to communicate the various roles of the associations and sea management. WCRL Association needs to become more representative and barriers to this should be identified.

WCRL RMWG


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barriers etc)



5.2


32,33,36,37,52,54 Extreme 3

Group meets regularly, agenda only considers target species management and minutes are taken

SWG is functioning properly and there is industry participation. The RMWG is not meeting as regularly and participation has not been as good as the SWG. MCS do not participate at RMWG and the distribution of minutes is delayed. Management should integrate science and compliance issues into one agenda item. RMWG decisions/recommendations are submitted to the relevant directors.

The chairperson of the RMWG must be involved in planning the timelines to ensure participation. Communication of scheduling and coordination of meetings must be ensured. Scheduled meeting dates must be stuck to. The chair needs to be present. Ensure participation of all divisions. Inform participants of follow-up actions ahead of the next meeting. Formalise the RMWG using the template of the SWG so that RMWG attendance becomes a core function with clear mandate. Appoint and invite dedicated MCM participants. Chairperson must ensure that decisions are followed up on and actions are taken.

WCRL RMWG


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barriers etc)



5.3


32,33,36,37,38 Extreme 3

Key stakeholders are identified and invited to attend meetings

Working groups are only effective if there is consistent attendance. SWG has good representation but no NGOs are represented; there is currently debate about whether NGOs should attend or not, but there is no overarching policy e.g. WWF attends some WG but not others. Economic staff do not participate in WG. Compliance don't attend WGs.

Formalise the RMWG using the template of the SWG so that RMWG attendance becomes a core function with a clear mandate. Appoint and invite dedicated MCM participants.

WCRL RMWG

5.4


34 Moderate 3.5

Ad hoc communication and information exchange takes place/Regular communication and information exchange takes place

MCM are entering into an MOU with SAMSA. Communication exists with NRCS. Ad hoc communication exists with local authorities during RL walk-outs. There is a need to explore the benefits of involving local authorities. This should be part of the TOR of the MCM Stakeholder Liaison Unit.

Formalise communication channels where required via MOUs, review TOR of the Stakeholder Liaison Unit.

WCRL RMWG/senior management


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barriers etc)



5.5


32,33,36,37,38 Extreme 7


Channels are there; formal meetings take place and are followed up on.

Maintain status quo. WCRL RMWG/senior management

5.6


32,33,36,37,38 Extreme 4

Regular communication and information exchange takes place

Attempts are made, but people are overcommitted. Channels are in place but are not as effective as they should be.

Improve co-ordination of a forum where operational managers can engage on a quarterly basis.

WCRL RMWG/operational management

5.7 Regional co-operation is operational and has been institutionalized (e.g. BCC). WCRL SWG/RMWG

a BCC 3

There is knowledge of a shared stock and intention to share information

WCRL is shared with Namibia (as supported by genetics) and information is shared on informal level but there is a lack of funding.

Engage with Namibian scientists and managers on pertinent issues. Formalise collaboration between the national working groups.

5.8 Namibia/South Africa is an active member of relevant RFMO WCRL SWG/RMWG


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barriers etc)



Objective 6:




Responsibility

6.1

Sector management plans which incorporate EAF considerations for all three dimensions of EAF are in place and peer reviewed.

55 Moderate 3.5

ERA has been undertaken to identify issues/Management plan has been developed and ERA issues are incorporated into the plan, but plan is not yet implemented

There is no formal management plan that addresses and incorporates EAF. There is a framework for an overarching sector management plan for all fisheries (strategy plan). After no feedback at the last senior MWG meeting, MCM is now populating the plan. It is not yet near completion, but ecological EAF considerations are taken into account. There is however a gap in the social aspect of the management plan. Although the planning process is not yet complete some aspects of the plan have already been implemented.

Incorporate the socio-economic issues and finalise the management plan. Present the draft plan to stakeholders for their input. Adopt the final plan.

WCRL RMWG

6.2 All relevant National Plans of Actions have been developed and implemented. WCRL RMWG/senior management


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barriers etc)



c IUU NPOA High 2


The IUU NPOA has not yet been developed. Industry sponsored a workshop on compliance for RL, with industry representatives; this report was presented to the DDG; this strategy should feed into the IUU NPOA.

Develop and formalise a strategy for compliance (on IUU issues) with respect to RL. Can incorporate the report from previous meeting (18 months ago). This should be translated into a detailed plan of action.

d Capacity NPOA Low 2


The capacity NPOA has not yet been developed. There is no capacity management for the WCRL fishery other than a limited number of rights holders. However it is a TAC fishery and therefore not considered a priority. In the long term, capacity management may need to be considered.

Maintain a watching brief.


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barriers etc)



Objective 7:




Responsibility

7.1


42,44 Extreme 3

Appropriate regulation, but inadequate penalty (e.g. fine too small)

Many regulations exist and are Included in the permit conditions e.g. closed areas, size limits, closed seasons. However, follow-through and penalties are inadequate and/or in frequent and therefore fail to act as a disincentive. This is an important issue that requires immediate attention. This issue is continuously raised and never addressed. The barrier to this is unknown. Furthermore, inadequate fines and penalties undermine FCO's. Section 28 is not being used to its full potential.

This issue should on the RMWG’s agenda. Setting up of/resurrection of Section 28 committee to be tabled at the SMS meeting.

WCRL RMWG/compliance


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barriers etc)



7.2


44 Moderate 1 No incentives identified

There is no specific reward or incentive for good compliance. At the moment, with the current performance review process, there is no scope for this but perhaps this is a possibility in the future. There are some social incentives (efficient use of permit, correctly and responsibly; transformation; compliance etc) which will count in performance review process. The review process also looks at transgressions, compliance with MLRA etc. Potential voluntary compliance incentives include tax relief and eco-labels. There was some concern that an incentive scheme might not work. Possible ideas include possibly rewarding a "no transgressions" to companies through a certificate similar to certificates issues for no accidents in factories.

Investigate and explore potential incentives e.g. Certificate for "no transgressions". A review of transgression record should be considered in the re-allocation of rights.

WCRL RMWG/compliance

7.3


42,44,49 Extreme WCRL RMWG/compliance


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barriers etc)



a Regular at sea patrols are undertaken High 3 40% implemented

Fuel costs and budget is a barrier to sea patrols. Research is frequently undertaken on patrol boats, but insufficient patrolling. There is under-utilisation of inshore patrol vessels (which can work in the kelp). Internal issues within the Compliance Directorate cause barriers to on-the-ground patrols.

Filling of posts is essential. Utilise the inshore boats (ski boats and rubber ducks) more effectively.

b

Adequate shore based controls are in place (e.g. in harbours, at landing sites etc.)

Extreme 5 80% implemented

There is a general feeling that nothing is happening. There is a contract with monitors to monitor landings.

Improve on the effectiveness of shore-based controls.

c The special investigation unit (SIU) functions well


The SIU is operational, but probably not fully implemented. All dockets that are registered go straight to SIU and they carry out the investigation. There is however a lack of communication of their work and how they operate. Because we group had little info, i.e. on the conviction rate, it is difficult to say how to increase effectiveness.

Fill vacant posts. Enhance effectiveness through increasing capacity. Improve communication.


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barriers etc)



d Functional VMS system implemented Extreme 6 90% implemented

All vessels carry VMS, but ops room only functions during office hours.

A 24-hour hotline should be set up manned by shift workers; the process of allocating shifts to facilitate a 24-hour hotline is in place and the implementation of such a system will improve the functionality and use of the VMS by MCM.

e Legal/Court system adequately apprehends offenders


The court system is does not adequately apprehend offenders. The Minister of Justice wants to reinstate the Environmental ‘green’ Courts but there is a financial barrier to running these courts. It is however a priority for the government and the judicial system.

Re-instate environmental/green courts.

f Regular aerial patrols are undertaken Low

No aerial surveys undertaken before. Not relevant to the WCRL fishery.

This is not considered a priority at present.

Objective 8:




Responsibility

8.1 Good research capacity is available to adequately

46 Extreme 3.5 Number of positions reflects capacity needs/60% of

No specific post(s) addressing this but it is inherent in individual’s

Fill vacant posts. Incorporate EAF aspects into KPAs. Senior management


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barriers etc)



understand EAF in this sector.

required positions filled

TORs.

8.2


46 Extreme Senior management

a Biological Moderate 3.5

Mechanisms/opportunities for skills development in place and/or specific courses being developed/Less than 50% of staff/industry are at required levels

No EAF-specific training is available for MCM staff although skills do exist. BCC EAF capacity project will provide an opportunity for managers and researchers to attend an EAF training course at Masters level at UCT or at an operational level through WWF.

Consider sending MCM staff to BCC training courses.

b Socio-economics Moderate 2.5

Good understanding of skill needs/Mechanisms/opportunities for skills development in place and/or specific courses being developed

The Business Review Commission is evaluating this need at present and should be complete within the next 18 months.

Mechanisms or opportunities for skills development need to be put in place and specific courses developed to address this need.

8.3


Senior management


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barriers etc)



a Biological 46 Extreme 4 50% of required funding obtained

The funding needs are understood. Barriers include budget constraints thus prioritisation of activities is important.

Obtain more funding but should work within a budget. Develop further partnerships with other role players e.g. WWF and universities. Investigate opportunities within BCC and EAF Nansen projects.

b Socio-economics 46 High 2.5

Good understanding of funding needs /Less than 50% of required funding obtained

The Business Review Commission is evaluating this need at present and should be complete within the next 18 months.

Funding should be sought to address priority needs identified by the Review.

8.4


46 Extreme 5 75% of required positions filled

Majority of posts are filled, but group felt that the number of posts is perhaps not the best measure for this objective given the inadequate management of this resource at present.

Fill more posts with the right people. Gain better understanding of EAF aspects through research so that appropriate management options can be considered and implemented.

Senior management

8.5


46 Extreme 6 80% of staff are at required levels

The group felt that MCM does have the necessary skills to implement an EAF. WGs have gained experience in EAF issues and awareness has grown.

Retain existing skills. Continue integration of EAF issues within sector-specific WG meetings.

Senior management


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barriers etc)



8.6


46 Extreme 6 80% of required funding obtained

MCM do not have adequate funding, but the challenge is more the capacity to implement than the lack of funding. However, adequate capacity hinges on sufficient funding attract the good staff.

Obtain funding, although this is difficult to achieve. Outsource capacity development. Utilise and encourage EAF training within MCM.

Senior management


42,44 Extreme 2.5

Good understanding of the capacity needs /Number of positions reflects capacity needs

Too few compliance officers to address entire coastline. Cannot get enough within MCM no matter how many posts are filled. There are currently MOUs with SAPS, SARS, TMNP, SeaWatch etc to partner with external law enforcement agencies.

Need cooperation with external law enforcement partners and conservation agencies (KZN Wildlife, SANParks) in order to enhance capacity for law enforcement.

Senior management

8.8


46 Extreme 5.5 Less than 50% of staff/industry are at required levels

A lot of new staff who require training. Knowledge on seasons, species ID, size limits etc is good, but the understanding and rationale behind these issues is limited. Budget to run courses for FCO's is limited. TRAFFIC does some training (donor funding). No institutionalised training of compliance. Paper trail of court processes and proceedings has improved through internal training.

Initiate internal training. Using MCMs experience and skills to implement these courses and provide the training. Identify someone from management to lead on this. Possibly adapt WWF RFP training.

Senior management


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barriers etc)



8.9


46 Extreme 4 50% of required funding obtained

It is unlikely that sufficient funding will ever be available. Insufficient equipment and the lack of funding to run equipment e.g. petrol is an urgent and extreme need. A proposal has been developed to address this need, but its outcome is unknown.

Apply for additional funding through the MTEF process. The group felt that very little else could be done to improve this situation especially with regards the running of equipment.

Senior management

8.10


46 Extreme 6 80% of the employment equity goals are met

Transformation has not yet been achieved.

Continue to take this into consideration when filling of posts. This is coupled with the skills and capacity development.

Senior management

Objective 9:




Responsibility

9.1


43 High 3.5

Training programme implemented to ensure that observers are adequately skilled in data collection/Observer coverage is adequate to ensure that data is representative

Good observer coverage on most vessels except deck boats, for which additional coverage is needed. It has however, increased from 8% to 10%-15% recently. Industry welcomes extra coverage. MCS could use their boat personnel on these deck boats. Barrier is finance.

Obtain funding to improve coverage on deck boats. WCRL RMWG


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barriers etc)



9.2


Extreme 7

Logbook data is being routinely used and results are communicated to stakeholders

Logbook data is routinely used. Data and feedback/mistakes is regularly communicated to stakeholders at the road shows which take place once a year before the season starts.

Maintain and improve if possible, but not necessary to do this more than once a year.

WCRL RMWG

9.3


Extreme 6.5

Reliable data management procedures in place to ensure that data is up to date and verified/Logbook data is being routinely used and results are communicated to stakeholders

Accurate landing information is generally obtained from the commercial sector and is used to inform management and levies.

Compliance and accuracy of landing declarations could be improved by improving the control mechanisms.

WCRL RMWG

9.4


Moderate 7

There is timely feedback of analysed data to stakeholders

Data management system is very good. The constant fine tuning of the MAST system which came into effect 2006 has improved the situation since the ERA in 2005.

WCRL RMWG/SWG

9.5


Moderate 0.5

Nothing has been done/No electronic data management system in place

No data system in place at all. Study on socio-economic indicators will help improve this by providing indicators which can be reported against.

Finalise the socio economic indicators and develop data management system.

WCRL RMWG/SWG


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barriers etc)



9.6


Moderate 7

There is timely feedback of analysed data to stakeholders

Electronic data management system is in place and being used. The data is cleaned, verified and used in reports, publications and catch reconciliations. This is a result of liaising with industry to provide more accurate data, as well as the fact that data capture has improved. Furthermore, the implementation of MAST has helped. There is adequate capacity to manage electronic data system and it has moved to being automated.

Maintain and improve. WCRL RMWG/SWG

Objective 10:




Responsibility

10.1


Low 5


There are few inter-fishery affects because of limited bycatch.

None at present since it is considered a low priority. WCRL SWG


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barriers etc)



10.2


61,62,63,64,71 Extreme 5.5

Research adequately addresses priority needs/Research is producing comprehensive results beyond priority needs

The link between climate change and harmful algal blooms etc is poorly understood, although the link between climate change and RL is well understood. This understanding has improved recently due to various studies.

In the process of establishing a climate change working group. It is a priority to understand the link between climate change and other ecological processes.

WCRL SWG and EAF SWG

10.3


57,58,65 Moderate 1.5

No research initiated or needs identified/Research needs/issues have been identified and prioritised

In general, there is poor understanding of the effect of other industries on RL. Issue 58 is still a problem. The impact of mining is extremely difficult to quantify. An assessment of the impact of mining has taken place and these results have been communicated to DME Northern Cape but have not as yet been resolved. Might be useful to refer to work undertaken by Namibia (Pisces consulting). Difficult to set up a study to evaluate the impact of mining because of confounding factors as one cannot isolate cause and effect. Inadequate access for compliance officers is still an issue, especially on the west coast.

Priority next steps are to address access, and to get mining industry to be sensitive to EAF and environmental concerns (perhaps through the new minister of environment). We need to ensure that the responsibility for EIAs lies with Dept of Environment to ensure no conflict of interest. There is a need for MPAs as reference sites against which the impacts of various human activities can be gauged.

WCRL SWG and EAF SWG


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barriers etc)



10.4


67,68,69,70 Extreme 4.5

Preliminary data available, but not yet analysed/Research adequately addresses priority needs

The government do not provide subsidies to the fishing industry. No direct study of economic drivers, although there is some understanding of the effects within MCM and the industry. Market related research by MCM is in place (pers comm. Andre Share) - current market impacts, and drivers. Information on company use of resources (e.g. dynamic of RL versus linefish catches etc) is limited and difficult to obtain.

MCM would like to commission a study of economic drivers but not sure if this can be achieved in the next 18 months. Therefore, explore and initiate studies into the economic drivers of this fishery.

WCRL RMWG

10.5


High 1 No research initiated or needs identified

There is no understanding. It is a high priority as it has an impact on the fishery. This should be an industry wide concern.

Implement social and economic unit post the Business Review commission’s report.

WCRL RMWG


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NAME AFFILIATION George Branch UCT Doug Butterworth UCT Tracey Fairweather MCM – Research and Administration Meredith Thornton MRI Peter Foley Industry Rennison Ruwa KMFRI, Kenya Kim Prochazka MCM – Resource Management Danie van Zyl MCM – Research Lutz Auerswald MCM – Research Jean Glazer MCM Claudia Tomas Ministry of Fisheries, Mozambique Neville Brink Industry Ntobeko Bacela MCM – Resource Management Johan de Witt MCM – Compliance Naseeh Jaffer Masifundise Andy Cockcroft MCM Susan Holloway UCT Dubula Odwa MCM – Resource Management Andre Share MCM – Resource Management


Citation: Paterson B, Petersen SL, Okes N and P Kainge. 2010. Ecological Risk Assessment Review for the Namibian Hake Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

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Ecological Risk Assessment Review for the Namibian Hake Fishery

Compiled by Barbara Paterson, Samantha Petersen, Nicola Okes and Paul Kainge

1. Introduction

Hake (Merluccius capensis and M. paradoxus) is an important commercial resource for Namibia, both in terms of revenue earnings and employment. The two species occur on the shelf and upper slope in Namibian waters; M. capensis occurs at depths between 100 m and 350 m, while M. paradoxus occurs mainly at depths of 300 m and 500 m. More than 90% of hake is currently landed by the freezer and wet fish trawlers, with the rest landed by longliners. 85% of hake products are exported to the European markets, 13% is marketed in Southern Africa and only 2% is consumed locally. The Ecological Risk Assessment (ERA) workshop for the Namibian hake fishery took place in Swakopmund, Namibia, between the 4th and the 6th of April, 2005. A total of 74 issues were identified for this fishery by workshop participants, of which 55 (74%) were rated as being of ‘Moderate’ risk or higher. 50% of issues identified fell under the ‘Ecological Wellbeing’ component, with two ‘Extreme’ issues identified; the first related to the bycatch or incidental mortality of threatened seabirds in both longline and trawl operations and the second to the potential impact of monkfish bycatch within the hake fishery on the sustainability of the monk fishery. 9% of issues identified fell under the ‘Human Wellbeing’ component, with the fact that the living standards of the fishing community and fishery service providers were linked to the state of both the fishery and the stock identified as an issue requiring careful management consideration. 41% of issues identified fell under the ‘Ability to Achieve’ component and of greatest concern to the management of this fishery was the lack of an approved management plan, bound by suitable management reference points, that reconciled conflicting objectives in an integrative manner. A workshop to review the ERA was held at the Ministry of Fisheries and Marine Resources (MFMR) in Swakopmund, Namibia, on the 29th of July 2008 and was facilitated by Dr Samantha Petersen and Dr Barbara Paterson of WWF-South Africa. After a wide distribution of invitations, the workshop was attended by a total of 29 participants.


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Amongst these were representatives from the National Marine Information and Research Centre (NatMIRC), the Directorate of Policy Planning and Economics (PPE), industry, NGOs, Fisheries Observer Agency (FOA) and researchers (University of Namibia – UNAM). This allowed for healthy debate. No remedial steps were identified during the workshop as the project was in its pilot phase at the time; the process was further amended to include ‘next steps’ subsequent to this workshop. Please see Annex 1 for a complete list of attendees. 2. Results


The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in Table 1. Objective 1: The managing authority has a good understanding of the ecosystem impacts of the Namibian hake fishery including target, non-target and general ecosystem impacts

Spatial distribution and genetic variability of the two target stocks are not incorporated into stock assessment procedures. Although bycatch, poaching, discarding and other issues have been identified as affecting the target stocks, these impacts have not yet been quantified. There is no programme to assess Kingklip and other non-retained fish bycatch. The impacts on vulnerable species such as seabirds and sharks have not yet been quantified. Additionally, there is little understanding of the ecosystem impacts of supplementary feeding including its impact on the economic viability of the fishery and, although these issues have been identified, fisheries operations have not been amended to mitigate these impacts. Research needs regarding marine habitats and ecologically important areas have been identified and prioritized. However fishing impacts on these areas have not been quantified or mitigated. Objective 2: Ecosystem impacts of fisheries are included into management advice

Activities towards implementation of appropriate management measures, for both hake species and kingklip, have been identified. Although mitigation measures for the impacts of fisheries on vulnerable species such as seabirds and sharks have not yet been tested, an NPOA for seabirds and sharks has been developed. However, no regulations have yet been put in place to address these issues. Although there is a good understanding of the capacity needs to implement an EAF, funding needs are not well understood. Consequently funding needs are not met and skills


Pg 305

development mechanisms are considered inadequate. There is also a lack of appropriate data management systems. Furthermore, logbooks and observer data protocols only address single species needs not EAF issues. Objective 3: The social wellbeing of dependent fishing communities is accounted for in management advice

A further issue raised, which invoked some discussion, was the need for sufficient capacity to address social priorities. The group indicated that currently no positions exist within MFMR, whose explicit terms of reference (TOR) include addressing the role of the fisheries sector in addressing the national priority of poverty alleviation. However, social implications are integrated into National Development Plans (NDP). The participants further noted that issues of poverty alleviation should be addressed in a holistic manner with other line ministries. At present social contributions are addressed on an ad hoc basis by the industry. At times of resource depression however, companies cannot be expected to continue with these contributions. As a consequence the poorest people suffer first. Therefore MFMR will need to have a good understanding of the social dimension to be able to alert other agencies of these priorities when necessary. Objective 4: The economic wellbeing of the fishing industry is maintained

Not all rightsholders have adequate business and marketing skills to ensure the long-term economic wellbeing of the fishery. However, relevant members of the industry have the necessary skills to implement responsible fishing practices and effective mechanisms are in place and continuously adapted to ensure this. The hake industry does have good access to international markets. The fishery is not currently eco-labelled. Nevertheless, the hake association has made a decision to move towards MSC certification and is seeking government support. Concerns were expressed at the workshop that eco-labelling could become a trade barrier and have negative social and economic impacts. It was further noted that eco-labelling provides a market driven incentive for responsible fishing and that a fishery receiving certification could provide additional resources to enhance the effective management of the fishery. There is a clear understanding of the economic context of the fishery. Objective 5: The managing authority has transparent and participatory management structures that ensures good communication and information sharing locally and regionally

MFMR has effective channels and forums to facilitate communication among the senior managers of the different fisheries departments (i.e. operations, research and PPE). This means that regular meetings are taking place and decisions are recorded and fed back with explanations to the relevant parties (e.g. operational managers). Additionally, working group meetings have good stakeholder representation, although, communication and information exchange with other government bodies at present is purely on an ad hoc basis. Namibia is a


Pg 306

participating member of SEAFO and is actively involved in developing recommendations and resolutions for this commission. Objective 6: Management plans incorporate EAF considerations

The issues identified in the ERA have been incorporated into a management plan however the management plan has not yet been implemented. A NPOA has been adopted for both seabirds and sharks, which incorporates stakeholder comment but has not yet been implemented. An IUU NPOA has however been implemented through regulations. Objective 7: Compliance to regulations reduces ecosystem impacts of fisheries

It was noted that in many cases penalties are inadequate and do not reflect the socio-economic context of the fishery. No voluntary mechanisms and incentives have been identified or put in place to reward good compliance by the industry (e.g. performance review procedures, eco-labelling, etc). Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

There is little understanding regarding the skills required for the compliance section to implement an EAF, including a good understanding of the regulations, the appropriate penalties and evidence collection. Thus far, only 50% of EAF considerations are appropriately regulated. Although there is a good understanding of the capacity needs to implement an EAF, funding needs to facilitate capacity, equipment and skills for compliance are not well understood. Consequently, funding needs are not met and skills development mechanisms are considered inadequate. Objective 9: Good data procedures exist to support EAF implementation

There is a lack of appropriate data management systems. Furthermore, logbooks and observer data protocols only address single species needs and do not consider EAF issues. Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc)

Not addressed at the time of this ERA review for this fishery.


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Objective Issues Priority Step Description of step Comments (including

details of progress, barriers etc)



Objective 1:




Responsibility



a M.capensis 3,4, 10 High 5


b M.paradoxus 3,4, 9 High 5


c Kingklip 13 High 1 No research initiated or needs identified

Identify what information is required; Investigate opportunities for a project (through universities, the ministry etc.); Initiate a project which will address the research and management needs

1.3 All fishing mortality including bycatch, poaching and discarding is adequately understood


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a M.capensis 2.5

Research needs/issues have been identified and prioritised/Research to address basic needs is underway

b M.paradoxus 2.5

Research needs/issues have been identified and prioritised/Research to address basic needs is underway

1.4 The spatial distribution (including transboundary distribution) is adequately understood

a M.capensis 2, 12 Low 4.5


b M.paradoxus 1, 12 Moderate 4.5



a M.capensis 2 Low 4.5

Preliminary data available, but not yet analysed/Research adequately addresses priority


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needs

b M.paradoxus 1 Moderate 4.5



1.6 The impacts of the fishery on bycatch or vulnerable species have been quantified

a Seabirds 16, 28 Extreme 3 Research to address basic needs is underway

b Sharks 17,18, 19, 25 Moderate 1 No research programme initiated

Incorporate data collection on the fisheries impact on demersal sharks into observer data sheets; or initiate a University project to investigate


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c Other vulnerable species e.g. dolphins, seals, fish etc

15, 20, 21, 22, 29 Moderate 1 No research programme initiated

Incorporate data collection procedures for non-retained species through observer data sheet; Collate what data is already available, and begin to implement a study that will link the information on the bycatch of these species to existing information on the biology and conservation of the species


1.8


33, 35 Moderate 2


Collaborate with researchers, ministry etc. to implement a study that will address the prioritised research needs; Identify vulnerable habitats e.g. map habitats and overlay fishing effort

1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on hake species.

34 High 4.5



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1.10

There is good understanding of the diet and role of hake species as secondary consumers in the trophic web.

34 High 3 Research to address basic needs is underway

1.11


26, 27 High 1 No research programme initiated

Initiate a research programme; Include data requirements in observer protocols; Link with other appropriate research programmes

1.12


Moderate 1 No research programme initiated

1.13

There is a good understanding of gear loss and/or ghost fishing including entanglement

30, 31, 36, 37 Low

Objective 2:


Issues Priority Step Description of next step

Comments (including details of progress, barriers etc)


Responsibility


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2.1 The relevant life history parameters for hake are incorporated into management strategies and appropriate management actions are implemented

a M.capensis 3,4 High 4


b M.paradoxus High 4


c Kingklip 13 High 4


d Monk 14 Extreme 6



a M.capensis 2.5

Intention to develop a strategy to incorporate parameters into stock assessment models/Responsibility assigned (e.g.


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relevant researcher, task group constituted, or RMWG etc.)

b M.paradoxus 2.5

Intention to develop a strategy to incorporate parameters into stock assessment models/Responsibility assigned (e.g. relevant researcher, task group constituted, or RMWG etc.)

2.4 The spatial distribution (including transboundary distribution) is adequately incorporated into stock assessment or other management advice including the broader MPA planning process.

a M.capensis 2, 12 Low 2

Intention to develop a strategy to incorporate parameters into stock assessment models

Incorporate current understanding into management advice; Establish task group to investigate how best to achieve the objective; Liaise with BCC


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b M.paradoxus 1, 12 Moderate 2


Incorporate current understanding into management advice; Establish task group to investigate how best to achieve the objective; Liaise with BCC


a M.capensis 2 Low 2


b M.paradoxus 1 Moderate 2




a Seabirds 16, 28 Extreme 2 Identification of possible mitigation measures/actions

Design and test identified mitigation measure; Can work closely with NGO’s e.g. Birdlife (ATF) to test these measures

b Sharks 17,18, 19, 25 Moderate 2 Identification of possible mitigation measures/actions


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c Other vulnerable species e.g. dolphins, seals, fish etc

15, 20, 21, 22, 29 Moderate 1


Identify species of high risk based on best knowledge; Implement a precautionary management approach for the identified specie


a Seabirds 16, 28 Extreme 1


Implement NPOA seabirds

b Sharks 17,18, 19, 25 Moderate 1


Implement NPOA sharks

c Over-exploited fish 15, 20, 21, 22, 29 Moderate 1





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2.9


33, 35 Moderate 1 No consideration of management actions

Identify management actions that will address the issues raised in the research programme

2.10


34 High 4


2.11

The biomass needed to ensure stability in the ecosystem has been quantified and the ecosystem impacts of fishing on secondary consumers has been formally included in

34 High 4



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management procedures.

2.12


Moderate 1


With the help of the research programme, begin testing proposed solutions

2.13


Moderate 1


2.16

Discarding of pollutants (e.g. plastics) is included in management procedures

32 Moderate

Objective 3:





Responsibility


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3.1

MFMR/MCM, as custodian of a common resource (that policy requires to be utilized for the benefit of all Namibians), has a good understanding of the role of the fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

38, 40, 41, 42, 43, 44 Extreme 5


3.2


38, 40, 41, 42, 43, 44 Extreme 6


3.3


42 Moderate 7

Fishery component into NDP in proportion to its contribution to local economy.


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3.4

MFMR/MCM has sufficient capacity to address gazetted social priorities (e.g. poverty alleviation, job creation, food security, primary education, health care).

38, 40, 41, 42, 43, 44 Extreme 1 Capacity needs not

understood

Initiate a study to improve understanding of social issues throughout MFMR; Investigate how social issues are currently addressed within MFMR; Investigate how MFMR policy can be aligned with other line ministries; Identify gaps and suggest remedial actions. Liaise with external institutions (Line Ministries, UNAM, NGOs).

3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MFMR/MCM and other line ministries (e.g. Ministry of Education, Health etc) & NGOs are established.

38, 40, 41, 42, 43, 44 Extreme 4


Objective 4:





Responsibility

4.1 Individual rights are economically viable. 6

Ongoing evaluation of strategy is taking place and the strategy is adjusted


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accordingly


59, 60 High 6

Performance criteria developed and fishery and/or rights holders assessed

4.3


59 High 6


4.4

All rights holders have adequate business skills and marketing skills.

39 Extreme 1 No understanding of skill needs Identify whether these skills

are lacking, and where

4.5


39 Extreme 6 80% of staff/industry are at required levels

4.6


39 Extreme 7 All staff/industry are at required levels

4.7 The fishery is eco-labelled. Moderate 1 No ecolabelling of

this fishery

Initiate dialogue between government and industry to facilitate support for MSC; Consider MSC pre-assessment


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4.9


7

Strategy incorporates ongoing amendments and is implemented successfully

4.10


38, 40, 41, 42, 43, 44, 58 Extreme 5


4.11


38, 40, 41, 42, 43, 44, 58 Extreme 6


Objective 5:





Responsibility


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5.1


55, 62, 63 Low 6

Minutes are circulated and adopted and follow-up actions taken

5.2


46, 47, 55, 62 Moderate 5 Minutes are circulated and adopted

5.3


46, 47, 55, 61 Moderate 5

Key government sectors and industry and civil society attend meetings regularly

5.4


46, 47, 55 Moderate 3


5.5

Channels or forums are in place to facilitate communication among senior managers of the different fisheries departments (i.e.

46, 47 Moderate 7



Pg 323





compliance, research and resource management).

5.6


46, 47 Moderate 4


5.7


a BCC 1,2, 57 Moderate 3


a SEAFO 1,2, 57 Moderate 7

Participating member and developing recommendations/resolutions

Objective 6:





Responsibility


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6.1


45 Extreme 3.5

ERA has been undertaken to identify issues/Management plan has been developed and ERA issues are incorporated into the plan, but plan is not yet implemented


a Seabirds NPOA 16, 28, 56 Extreme 5

The NPOA has been adopted which includes stakeholder comments but not implemented

b Shark NPOA 17,18, 19, 25, 56 High 5

The NPOA has been adopted which includes stakeholder comments but not implemented

c IUU NPOA 56 High 6

The NPOA has been implemented through regulations (e.g. Permit/license conditions)

d Capacity NPOA 56 High 3 Stakeholder meetings have been held

Objective 7:




Responsibility


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Note: there was limited compliance participation in Namibian workshops and these inputs were obtained through follow up interviews with the Namibian Inspectorate.

7.1


49 Moderate 1 No regulation of EAF considerations Act currently under review Include EAF considerations in

Act revision

Directorate of operations and DRM

7.2

Adequate mechanisms are in place to support voluntary compliance (e.g. performance review procedures, eco-labelling, etc)

49, 63 Moderate 1 Not in place. No incentives identified.

Currently not included in the performance review criteria; incentives were not previously considered because penalties were considered adequate

Identify possible incentives Directorate of operations

7.3


48 Moderate

a Regular at sea patrols are undertaken 7 100% implemented

Patrols undertaken according to schedule; target has been reduced from 240 sea days/month/patrol vessel to 144; Sign of success and good financial planning; number of violations at sea is low and remained stable

Directorate of operations

b


7 100% implemented

Inspectors permanently at each factory; 24 advance notice is given on all landings at factories, in port and at sea no offloading is permitted



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without inspector present.


4 60% implemented

There is a committee that considers all observer reports before they go to court to ensure that all important information is at hand and case unlikely to be thrown out. However, no specially trained inspectors; Need to raise investigative capacity. Suggestion was made that 2-3 inspectors be sent to investigative training at police training school; Need a legal advisor within MFMR (compliance section) to advise preparation of cases and liaise with attorney general’s office;

Special training for selected inspectors; employ a fisheries law specialist.


d Functional VMS system implemented 48 Moderate 4 60% implemented

VMS hardware and equipment in place and functioning; Software requires updating; Lines between European and local base stations are unreliable; Contract with Bluefinger provider has been renewed and signed; waiting for software update and training to take place.

Bluefinger consultants to install software update and train staff.



4 60% implemented

Not many cases are thrown out of court; Collaboration with Swakopmund magistrate court is good, Walvis Bay is improving; main issue is that

Implement formal and regular meetings between compliance section and judiciary to better inform magistrates regarding the importance of fisheries



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magistrates change frequently and do not understand fisheries issues; Meetings with Judiciary take place twice a year.

related cases.

f Regular aerial patrols are undertaken 6 90%

Resources and targets are in place; target: 74 hours/month; schedule is fulfilled unless aircraft, pilots and engineers utilised for other purposes as occasionally is the case.

Meet targets. Directorate of operations

Objective 8:





Responsibility

8.1


53 Extreme 2 Adequate understanding of the capacity needs

Implement EAF training programme; Send people on courses to specifically address capacity needs (e.g. business courses, university courses depending on need).

8.2


53 Extreme 2 Adequate understanding of skill needs

Identify capacity building opportunities locally, or abroad; Implement an EAF training course at NAMFI.


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8.3


54 Extreme 2 Adequate understanding of funding needs

Identify funding sources; Obtain required funding.

8.4



8.5


53 Extreme 3 Less than 50% of staff/industry are at required levels

8.6


54 Extreme 1 No understanding of funding needs

Investigate funding needs to implement EAF; Identify funding sources.




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8.8


53 Extreme 1 No understanding of skill needs Initiate EAF course with

NAMFI.

8.9


Moderate 1 No understanding of funding needs

Investigate funding needs to implement EAF and identify funding sources.

8.10


53, 60 Extreme 7 All (100%) of the employment equity goals are met

Objective 9:





Responsibility

9.1


51, 52 Extreme 1

Observer programme only addresses single species needs

Liaise with FOA about the possibility of including EAF information and data needs; Initiate EAF training course at NAMFI and include observers.


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9.2


52 Extreme 1

Logbook/landing declaration design only captures target species information

Re-design logbook sheets to adequately capture required information.

9.3


52 Extreme 1

Logbook/landing declaration design only captures target species information

9.4


50 Moderate 5

Database is regularly updated OR Mechanisms are in place for verification (Score if either is true)

9.5


38, 40, 41, 42, 43, 44, 52 Extreme 3

Current data management system development is incomplete

9.6


50 Moderate 1 No electronic data management system in place

Identify a person to draw up database specifications (ensuring that comprehensive EAF information is included); Design and develop mechanisms to update, clean and validate the database; Develop TOR for database manager; Develop data management system


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NAME AFFILIATION Christo October Directorate of Policy, Planning and Economics, MFMR Martin Shappy UNAM Martin Tjipute UNAM Hentiesbay Campus P. Germishuys ETALE Fishing Pieter van Wyk Benguela Sea Products Dave Russell David Russell Fisheries Consultancy Rauna Mukumangeni MFMR Jacqueline Platt MFMR Herman Krauze NovaNam, Walvis Bay Randall Izaaks Tunacor Kennedy Mbanga Tunacor Paul Kainge MFMR Renate Lemke MFMR Anja v d Plus MFMR Nadine Moroff MFMR Heidi Skrypczeck MFMR Jean Paul Roux MFMR John Paterson Albatross Task Force Hannes Holtzhausen MFMR Faye Brinkman MFMR Beau M Tjizoo MFMR John Kathena MFMR Johannes A Iytembu MFMR Ben van Zyl MFMR Lizette Voges Fisheries Observer Agencies Titus Iilende MFMR Carola Kirchner MFMR Rudy Cloete MFMR Pinehas Natangwe Auene Hangana Seafood


Citation: Moroff N, Paterson B, Petersen SL and U Uanivi. 2010. Ecological Risk Assessment Review for the Namibian Small Pelagic Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

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Ecological Risk Assessment Review for the Namibian Small Pelagic Fishery

Compiled by Nadine Moroff, Barbara Paterson, Samantha Petersen and Uatjavi Uanivi

1. Introduction

The purse-seine fishery in Namibia is based largely on sardine Sardinops sagax and juvenile cape horse mackerel Trachurus capensis, and to a lesser extent on anchovy Engraulis encrasicolus and round herring Etrumeus whiteheadii. The fishery commenced soon after World War II when there was a great demand for canned fish. The stock is in a critical state and collapses in the fishery are attributed mainly to overfishing and environmental perturbations. This fishery operates almost entirely from the port of Walvis Bay. The Ecological Risk Assessment (ERA) workshop for the Namibian small pelagic fishery took place in Swakopmund, Namibia, between the 26th and the 28th of September, 2005. A total of 66 issues were identified for this fishery by workshop participants, of which 49 (74%) were rated as being of ‘Moderate’ risk or higher. 41% of issues identified fell under the ‘Ecological Wellbeing’ component, with the current low abundance of several target species being of concern. Sardine abundance is considered critically low and the size and age structure of the stock has changed. 8% of issues identified fell under the ‘Human Wellbeing’ component, a sub-economic TAC was considered an extreme risk as it would lead to a closure of the industry with considerable negative social effects. Historically, this fishery was the highest employer in Namibia, but the fishery had diminished to such a point as to be on the verge of commercial collapse. 51% of issues identified fell under the ‘Ability to Achieve’ component; the highest risk to this fishery was thought to be the fact that social and economic demands conflicted with the sustainability of the stocks, which was compounded by a lack of reliable economic data and a lack of management with clearly defined (reconciled economic and ecologically sustainable) objectives. A workshop to review the ERA was held in Swakopmund, Namibia, between the 30th and the 31st of March, 2009. The workshop was hosted by the Ministry of Fisheries and Marine Resource (MFMR), and facilitated by Nadine Moroff and Uatjavi Uanivi of MFMR and Drs. Samantha Petersen and Barbara Paterson of WWF-South Africa. After wide distribution of invitations, the workshop was attended by a total of 24 participants.


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Most attendees were from MFMR – Directorates of Resource Management (DRM) and Policy, Planning and Economics (PPE), some from the pelagic industry and few from the MFMR Directorate of Operations. Although there was limited participation from the inspectorate (compliance), the debate proved to be very constructive. Please see Annex 1 for a complete list of attendees. 2. Results


The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in Table 1. Objective 1: The managing authority has a good understanding of the ecosystem impacts of fisheries including target, non-target and general ecosystem impacts

The purse seine fishery targets juvenile horse mackerel at the beginning of the fishing season and later the more valuable sardine. There is only a basic understanding of biological parameters of sardine and horse mackerel that are incorporated into stock assessment models advising management. Hardly any research is conducted on other small pelagic fish, as they are not quota-managed. This lack of information is incrementally being addressed e.g. by collecting additional data on surveys. A great barrier to improve understanding the biology is the lack of personnel at NatMIRC. There is generally a good understanding of the fishing mortality in Namibia but less on the fleet behaviour. This knowledge could easily be gained by making the Vessel Monitoring System (VMS) operational. Some information on the spatial distribution of target species is available, but surveys need to assess the whole distribution, including Angola. Furthermore information on the catches made in Angola is required. Increasing the awareness of skippers, observers and inspectors of the importance of ecosystem data would facilitate monitoring. Of the few by-catch species that the purse seine fishery catches, snoek seems to be the most vulnerable due to cumulative effects from several fisheries. The other by-catch species such as mesopelagic fish and jellyfish should be investigated to get a better understanding. Sardine plays an important role in the functioning of upwelling ecosystems. There is a need to conduct further diet studies across the whole food-web and to improve ecosystem models to fully understand trophic controls and food-web dynamics. More


Pg 334

information on spatial distribution of predators is required to understand the localised impacts of the fishery. Objective 2: Ecosystem impacts of fisheries are included into management advice

Though there are some significant gaps in the biological understanding (such as the effect of targeting the horse mackerel juveniles) the available biological and fisheries information is incorporated into the stock assessment models of sardine and horse mackerel. However, the scientific recommendations are not always implemented, frequently with poor transparency in the decision making process (relates to objective 3). To ensure better sustainability, information on target species should be shared between Angola and Namibia and management actions should be harmonized. Other small pelagic species should be managed based on the current understanding. By-catch data should be made available to other sections dealing with the respective species (e.g. hake and linefish). Jellyfish bycatch is of operational concern and mitigation measures or operational solutions should be sought to minimize the catch of jellyfish, without causing sardine mortalities through catch and release. The current understanding of the low biomass of sardine and its effect on the ecosystem (both on higher and lower trophic levels) are presented to management but at present is not taken account of in management decisions. Only some spatial aspects of sardine predators are addressed by management through the marine protected area around the seabird breeding islands. This, however, does not give enough protection to the Cape Gannet. Objective 3: The social wellbeing of dependent fishing communities is accounted for in management advice

The role of the fishing sector towards poverty alleviation in Namibia is not formally addressed by MFMR, but the need to maintain social and economic well-being is probably an underlying driver for the frequent setting of the sardine TACs higher than recommended by fisheries scientists. This links with the concern that there is a lack of transparency in the TAC allocation process – related to objectives 1, 3 and 4. As part of the TAC recommendations to management and the Advisory Council, PPE informs on the short-term economic impacts of TAC allocations for one season only. To justify TACs based on socio-economic reasons, there should be follow-ups on the commitments made by companies during the rights review process. Furthermore there is a need to research longer-term impacts of TACs on social and economic well-being. PPE should therefore initiate the development of detailed social and socio-economic research objectives. To address limited capacity, it was suggested to collaborate with UNAM and other research institutions in the region (related to objective 10) and establish a transdisciplinary working group to collaborate on issues of poverty


Pg 335

alleviation, basic education and primary health care between various ministries and NGOs. Objective 4: The economic wellbeing of the fishing industry is maintained

The low sardine biomass poses currently a limit to enhancing economic well-being through the sardine directed fishery. At present the market demand is much greater than the supply of sardine. Consequently there is currently no incentive for diversification or for eco-labelling. To maintain economic viability rightsholders have grouped together, but new rightsholders still require some training to ensure adequate business skills. PPE’s input into the management recommendation process ensures that short-term economic implications of management decisions are considered. There is, nonetheless, a need to develop mechanisms for the evaluation of the decisions taken. Feedback to the fisheries scientists and enhanced transparency of management decisions was requested (related to objectives 1 and 3). As the medium-term rights will expire in 2010 a review process is about to start. The current performance criteria will need to be updated and the process itself needs to be reviewed. Objective 5: The managing authority has transparent and participatory management structures that ensure good communication and information sharing locally and regionally

The Pelagic Fishing Association of Namibia represents all rightholders. All other communication channels such as within the ministry and between MFMR and the industry need to be improved. Some committees and groups meet regularly such as the senior managers of MFMR, but actions are not always taken; furthermore little feedback is given from meetings such as those between different ministries. Better communication on all levels and between stakeholders will ensure transparent management (compare objectives 1, 3 and 5). Building a common understanding through improved communication will help towards resolving conflicting objectives. The sharing of information between Namibia and Angola also needs to be increased, as both countries are utilising the same stocks. Objective 6: Management plans incorporate EAF considerations

In 2007, Resource Management distributed draft management plans for the sardine and horse mackerel management fishery, albeit few EAF issues were incorporated. Since then some updates were performed by DRM, but the Management Plans are still lacking input from operations and PPE. Other management documents addressing EAF issues are the National Plan of Action to address illegal, unregulated and unreported fishing. This NPOA has been implemented, but there is a need to raise awareness, especially within the inspectorate. Another NPOA, the National Plan of Action to address over capacity needs to be finalized.


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Objective 7: Good compliance to regulations reduces ecosystem impacts of fisheries

Although a vessel monitoring system (VMS) is in place it is not operational (related to objective 1). This should be addressed to facilitate improved monitoring. Currently there are no incentives to reward good compliance. The Marine Resources Act is currently under review and the Directorate of Operations and Resource Management should ensure that EAF considerations and incentives for compliance are included. An example of an incentive would be to include compliance into the performance review criteria (related to objective 4). Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

There was some discussion as to whether the posts in the Directorate of Resource Management, if filled, would suffice to address additional requirements posed by EAF or not. For an EAF, ecological and stock assessment research requirements will need to be expanded, but currently there are only two posts that explicitly include such research in their terms of reference. A needs analysis should be undertaken urgently to, inter alia, ensure a common understanding of the research needs. All available positions should be filled. A further solution to address additional capacity needs is to utilize outside capacity through collaborations. The understanding of an EAF by existing staff should be improved through training opportunities offered by the BCC or through collaborations e.g. with universities. Within PPE skills to support EAF management is lacking, as there is little awareness and understanding of EAF issues. There is an urgent need to address this gap. It was felt that the capacity to advise management was sufficient within Resource Management and PPE, if all posts were filled. Currently only 30% of the posts in Resource Management are filled, and there is an urgent need to attract and retain staff through, for example competitive salaries and career opportunities, better communication and transparency, better leadership and reward for good performance. There is no common understanding of funding required to address EAF research needs, but funding for implementing management decisions by ensuring adequate research capacity, equipment and skills were felt to be above 65% of the funding needed. Due to the administrative processes within MFMR, funds are difficult to access. There is a need for improved financial management and to prioritize activities both within the Directorate of Resource Management and PPE. The greatest funding needs were felt to be in the area of human capacity, where more competitive salaries are needed to recruit and retain skilled staff.


Pg 337

To implement an EAF there is a need to train compliance staff and increase awareness. This also requires additional funds. Additional skills and awareness for EAF could be addressed by the WWF Responsible Fisheries Training Programme, after adapting it to the purse seine fishery. The industry will need to take the lead in this process. Industry stakeholders, on the other hand, seem to have adequate skills to participate in co-management. This is strengthened by joint research discussions and surveys. The highest possible step was awarded to employment equity and adequate compliance capacity. Objective 9: Good data procedures exist to support EAF implementation

The data collected by skippers and observers are of varying quality. There is a need for the scientists to give feedback to the skippers (and observers) to aid their understanding of why the data they submit is important and how it will be used. Training of observers should be reviewed and should include a module on equipment use and EAF. The data management procedures need to be reviewed and a data policy needs to be developed in DRM and PPE. There is an urgent need for data verification to ensure all parties have the same information. There is a central electronic data management system, but it is not adequate for this fishery. Those individuals responsible for maintaining the database should receive training to ensure that the data is handled and stored appropriately (including back-ups, data cleaning etc.). Additional capacity is needed to handle socio-economic data adequately. Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries and climate change)

There is some monitoring of the effect of other fisheries on the purse seine fishery, and there are by-catch limitations in those fisheries. However, there is little understanding of the impact of non-target species on sardine. Other external impacts such as the effects of climate change on the sardine stock need to be better understood. In this regard a project called GENUS is currently underway. External economic (e.g. effect of exchange rates) and social (e.g. HIV and AIDS) impacts on the industry are understood by the industry, but PPE should increase research e.g. through collaborations with universities (relates to objectives 3 and 4)


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Next steps (to be undertaken within the

next 18 months) Responsibility

Objective 1:




Responsibility


1.1 Good understanding of life history parameters that enable adequate stock assessment (e.g. natural mortality, age length key, age at maturity, factors affecting recruitment) Resource Management

a Sardine 3,4,5,7 Extreme 4 Preliminary data available, but not yet analysed

Good understanding of some parameters which are incorporated into stock assessment; remaining priority needs still to be addressed: factors affecting recruitment variability (Master thesis, some ongoing research, CUFES sampling), ageing information (at present otoliths are being collected, but lack capacity for analysis); barrier is because post has been vacant for 2.5 years; high variability in model outputs indicates inadequate understanding of some key parameters

Fill vacant posts with adequately skilled staff


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b Horse mackerel (juvenile and adult 13,14 Extreme 4

Preliminary data available, but not yet analysed

Decreasing length frequency and size at maturity which is poorly understood (likely to indicate a stock under pressure): is this resulting in increased stock productivity or weakening the stock which has opposing implications; Undertook a dedicated aging study 2 years ago; CPUE and survey biomass indices are conflicting which reduces reliability and 'faith' in stock assessment results; gear changes may be causing some of this inconsistency; CUFES sampling underway; longer life span than sardine so recruitment variability doesn't have same impact

Future research should focus on better understanding the drivers and implications of the decreasing length frequency and age at maturity; fill vacant posts with adequately skilled staff


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c

Other pelagics (anchovy, round herring, sardinella, chub mackerel)

8,11,15 Extreme 1.5


Some research needs have been identified, but not all; Currently no dedicated research on any of these species; catches are recorded in logbooks; Full biological information is collected during surveys for anchovy and length/weight for round herring; 2009 first dedicated small pelagic survey since early 1990s (horse mackerel survey was extended)

Small pelagics surveys should continue; research needs to be thoroughly identified and prioritised

1.2 Good understanding of the fisheries dependent parameters that enable adequate stock assessment (e.g. fishing mortality, fishing effort) Resource Management, Directorate of Operations

a Sardine 3,4,5,7 Extreme 6


Data collected from logsheets (estimates by skippers at sea), A-forms (landing declarations), observers (fishing location); some of this is incorporated into stock assessment; VMS system in place, but currently this information is not accessible for use in stock assessment

Request access to VMS data

b Horse mackerel (juvenile) 13,14 Extreme 6


Same as above Request access to VMS data


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c


8,11,15 Extreme 2.5

Research needs/issues have been identified and prioritised / Research to address basic needs is underway

Some information is captured in logsheets and A-forms, which do make allowance for anchovy and round herring, with a category for 'other' where sardinella and chub mackerel can be captured; species identification and separation is generally unreliable (both in terms of reporting and species id skills)

Logsheets should be adjusted to capture this information; raise awareness of skippers, observers and inspectors of the importance of accurate information and the need to record species separately; also request access to VMS data; address the voluntary nature of training for observers; fill vacant posts with adequately skilled staff; identify research needs

1.3 All fishing mortality including bycatch, poaching and discarding is adequately understood

a Sardine 6 Low 2


Sardine is caught as a bycatch in the midwater trawl fishery; some monitoring taking place and will be ongoing for a further 3 months; logsheets and observers report sardine catches; bycatch of sardine may currently be low due to the collapsed status of sardine, this may have been substantial historically; unknown catches of sardine in Angola; limited discarding assumed to be taking place at present

Improve understanding of sardine bycatch in the midwater trawl fishery; encourage information exchange and improve monitoring of sardine catches in Angola (through MOU or BCC between Angola and Namibia)


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b Horse mackerel (juvenile) 12 Extreme 1

No research initiated or needs identified

This species is the primary target of the midwater trawl fishery; size frequency distributions are compared between purse seine and midwater trawl fisheries; unknown catches of juvenile horse mackerel in Angola

Encourage information exchange and improve monitoring of sardine catches in Angola

c


6 Low 1 No research initiated or needs identified

No research programme at present

Fill vacant posts with adequately skilled staff; identify research needs

1.4 The spatial distribution (incl. transboundary distribution) is adequately understood

a Sardine 1,2 Extreme 3 Research to address basic needs is underway

Seasonal and annual fluctuations in the proportion of the stock in southern Angola; there is a poor understanding of these fluctuations; surveys are undertaken throughout the range of the species; research ongoing to investigate spatial implications of the effect of low oxygen, water temperature etc.

GENUS - bilateral project between Namibia and Germany to investigate linkages between the environment and eggs and larvae; Implement the MOU to ensure information sharing with Angola including results of Angolan survey


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Seasonal and annual fluctuations in spatial distribution; there is a poor understanding of fluctuation drivers; surveys are undertaken in Namibian component of the range of the species; Transboundary nature of horse mackerel is not well understood

Implement the MOU to ensure information sharing with Angola

c


9,10 Moderate 1.5


Some catch information for all four, survey information for anchovy and round herring; no dedicated research to address this question; catches of these species are not very important to the fishery, but they are important to the functioning of the ecosystem

First understand basic biology; also implement MOU with Angola to ensure information sharing


a Sardine 1,2 Extreme 3 Research to address basic needs is underway

One stock in Namibia and Angola is assumed, which is separate to the South African stock; Carl van der Lingen's (MCM) student will undertake genetic analysis of Namibian and South African stock(s); tagging studies undertaken in the 1960/70s found a few tagged Namibian sardine in South Africa

Collaborate with MCM on genetic study


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Stock separation between South Africa and Namibia - study done in early ‘90s by Naish; one stock in Namibia and Angola

c


9,10 Moderate 3 Research to address basic needs is underway

Group not aware of genetic work

Not considered a priority at present


1.6 The impacts of the fishery on bycatch or vulnerable species have been quantified Resource Management

a Hake (M. capensis) Low 5


A few thousand tonnes caught per year mostly small size classes; not currently incorporated into hake stock assessment, but given low catches it might not be necessary

Continue monitoring; communicate catches to demersal group who should inform small pelagic scientists of the need (or not) to include in stock assessment

Minimal by-catch; was not raised during the ERA workshop

b Hake (M. paradoxus) na Likely to be very limited interaction

c Snoek 18,19 Low 5


Snoek is caught as a bycatch in a number of fisheries (mostly demersal and midwater trawl) and is the target of the linefishery; Not currently assessed; stock is shared with Angola and South Africa; data from multiple fisheries stored in FIMS

The cumulative effects of a number of fisheries should be assessed


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d Seals, sharks, seabirds and cetaceans

21,30 Low 1 No research initiated or needs identified

Happens infrequently, although not currently quantified

Check observer reporting of these species; if found inadequate improve data requirements; evaluate available data


1.7 Monitor relevant catch and survey data Resource Management, inspectorate

a Jellyfish 23,25 High 2


A monitoring programme is under investigation e.g. Lüderitz is planning on collecting information on the Lüderitz sampling lines; some information is captured in logsheets; BENEFIT and BCLME had a project to investigate jellyfish; acoustic survey done in Namibia to assess the biomass of the two main jellyfish species; information also being collected during most surveys

There is a need to collate the available information; Develop a monitoring programme in collaboration with other sections and other scientific institutions

b Gobies 16,25 Extreme 2


Data is collected in some resource surveys; desktop study collated existing information on mesopelagics; there have been a number of research projects; mainly BENEFIT and BCLME projects

There is a need to collate the available information; develop a monitoring programme in collaboration with other sections and other scientific institutions


Pg 346





c Lanternfish Low 2


Data is collected in some resource surveys; desktop study collated existing information on mesopelagics; under BCLME; Norwegian scientists undertook a mesopleagics survey on the Nansen

Develop a monitoring programme in collaboration with other sections and other scientific institutions


d Other bycatch incl. gurnards, linefish (cob) etc.

17,20 Low 1 No research initiated or needs identified

No research programme at present

Include species specific information in the logsheets


1.8


24, 25, 26, 27, 28, 31 Extreme 3.5


No gear impact for purse seine fishery; some information on seabird foraging and its overlap with the small pelagic fishery exists; some foraging information for seals exists, but not thoroughly evaluated; logsheets include seabird and seal information, but not always noted

Some aspects will be covered by MPA monitoring; investigate collaborations with other research institutions or BCC to undertake tracking of seabird and seal foraging behaviour

Resource Management


Pg 347





1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on small pelagic species.

26,27,28,29,30 Extreme 2.5


Seal diet is currently monitored which indicate they consume some sardine; some evidence that hake recruitment is negatively affected by the lack of sardine; seabird diet sampling programme underway (but not covering all locations); Note: this objective pertains both to the effect of stock size on top predators and the role of top predators in preventing/ limiting sardine stock recovery; some preliminary foodweb models exist

Continuation and consolidation of diet studies; Conduct a study of trophic controls and foodweb dynamics; there is a need for external collaboration with other research institutions

Resource Management

1.10

There is good understanding of the diet and role of small pelagic species as secondary consumers in the trophic web.

24,25 High 2.5


Preliminary sardine diet study underway; most of our present understanding is based on the southern Benguela

Continuation of diet studies; Conduct a study of trophic controls and foodweb dynamics; need to better understand the release of predation pressure on prey species; there is a need for external collaboration with other research institutions

Resource Management

1.11

There is good understanding of the ecosystem impacts of supplementary feeding (by making offal and/or catches

22,29,30 Low 3 Research to address basic needs is underway

Not a major ecological issue in this fishery; limited operational implications

Resource Management


Pg 348





available to predators).

1.12


22,29,30 Low 3 Research to address basic needs is underway

Not a major ecological issue in this fishery; limited operational implications

Resource Management

Objective 2:




Responsibility


2.1 The relevant life history parameters for sardine are incorporated into management strategies and appropriate management actions are implemented

Management advice: Resource Management; management decisions: management committee


Pg 349





a Sardine 3,4,5,7 Extreme 4.5

Activities towards implementation (e.g. identification of appropriate management actions) / Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc)

Currently managed by a TAC; minimum mesh size; New MPA may have implications for small pelagics, life history information is incorporated into stock assessment and management plans which is presented to management, however this advice is not always implemented; TAC recommendations are viewed as a starting point for 'negotiations' for quotas

Increase transparency of decision making process; increase communication and benefits of long-term sustainability; improve the general understanding that stock dynamics poses a limit to sustainable utilisation



Currently managed by TAC; minimum mesh size; concern regarding targeting the juvenile component of this stock; Horse mackerel goes into fishmeal (lower value than frozen product); note that although Midwater trawlers catch larger size classes of HM, but due to the decreasing length frequency there is an increasing overlap in size class of catches between purse seine and midwater trawl; Both length frequencies are included in the stock assessment

Focus should first be on improving our understanding of the take of juvenile horse mackerel (e.g. the influence on recruitment etc.), then research outputs should be incorporated into management advice


Pg 350





c


8,11,15 Extreme 1


Currently no management action i.e. no TAC or bycatch levy set for these species; On occasion sardinella catches are higher than other targets, therefore this should be addressed; Research is not currently incorporated into management advice

Provide management advice based on current understanding



a Sardine 3,4,5,7 Extreme 4.5


The stock assessment incorporates fisheries information which is incorporated into management advice; however TAC recommendations are not always implemented


Pg 351







Small pelagic catch & length frequency is included into the stock assessment, but effort information is not

Consider the effect of not including purse seine fishery effort information into horse mackerel stock assessment

c


8,11,15 Extreme 1


Currently no management action taken

Consider appropriate management actions


Management advice: Resource Management; management decisions: management committee; MOU: senior managers

a Sardine 6 Low 1


Currently included in estimates for natural mortality; which are at present higher than expected. Bycatch etc. could be contributing to this higher than expected natural mortality; Research MOU to facilitate the sharing of information between Angola and Namibia; BCC

Implement the MOU to ensure information sharing with Angola



Currently included in natural mortality estimates of the stock assessment model


Pg 352





c


6 Low 1


Not currently addressed Sardinella catch information should be shared with Angola



a Sardine 1,2 Extreme 2


Model is currently not spatially explicit; stock assessment currently incorporates the entire stock (i.e. Namibian and Angolan components)

Need to harmonise management between Namibia and Angola

b Horse mackerel (juvenile) 12 Extreme 1.5


Model is currently not spatially explicit; stock assessment only incorporates Namibian component of the stock; this has been identified as a need under the BCC



Pg 353





c


9,10 Moderate 1


Sardinella, anchovy and round herring are shared with Angola; anchovy shared with South Africa, but not currently being fished by Namibia

Priority is to attain baseline information on these species first



a Sardine 1,2 Extreme 2


Model is currently not spatially explicit; stock assessment currently incorporates the entire stock


b Horse mackerel (juvenile) 12 Extreme 1.5





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c


9,10 Moderate 1


Sardinella, anchovy and round herring are shared with Angola; anchovy shared with South Africa, but not currently being fished by Namibia; catches of these species are not very important to the fishery, but they are important to the functioning of the ecosystem

Priority is to attain baseline information on these species first




a Hake (M. capensis) Low 1


At present hake bycatch in the purse seine fishery is not incorporated into the stock assessment; but given low catches it might not be necessary

Data should be communicated to demersal section who should lead on identifying management actions


b Hake (M. paradoxus) na na Considered a low priority

c Snoek 18,19 Low 1


No management currently in place

Linefish section to lead on identifying management actions; consider precautionary catch limits


Pg 355






21,30 Low 1


Considered a low priority Awaiting research results



a Hake (M. capensis) Extreme 1


At present hake bycatch in the purse seine fishery is not incorporated into the stock assessment; but given low catches it might not be necessary

Hake section to lead on identifying the need for management actions


b Hake (M. paradoxus) Low na Considered a low priority

c Snoek 18,19 Low 1


Linefish section to lead on identifying management actions


21,30 Low 1


Considered a low priority Awaiting research results



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2.8 Monitoring in place and relevant indicators/thresholds are developed for adaptive management


a Jellyfish 23,25 High 2


Bycatch of jellyfish is unlikely to affect jellyfish populations, however the impact of jellyfish on the purse seine fishery is not understood (trophic role and operational challenges)

Identify possible mitigation or operational solutions to high catches of jellyfish, without impacting the sardine catch

b Gobies 16,25 Extreme 1


Group did not consider this a priority

c Lanternfish Low 1




d Other bycatch incl. gurnards, linefish (cob) etc.

17,20 Low 1





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2.9


24, 25, 26, 27, 28, 31 Extreme

5(penguins); 2 (Gannets)

Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc) (penguins) Some indication of intention to develop a strategy to incorporate parameters into stock assessment models (gannets)

Protected areas surrounding seabird breeding islands been promulgated; protects breeding penguin foraging area, but limited effect on gannets; also due to the collapsed nature of the sardine stock fishing was not taking place close to the breeding islands

Consider management options to ensure sufficient protection of gannet foraging areas


2.10


26,27,28,29,30 Extreme 2.5

Some indication of intention to develop a strategy to incorporate parameters into stock assessment models / Responsibility assigned (e.g. relevant researcher, task group constituted, or RMWG etc.)

See above Consider how to incorporate the results of study suggested above



Pg 358





2.11


24,25 High 2


Recommendations have been presented to management, but have not been implemented

Consider how to incorporate the current understanding into management actions and develop mechanisms for adaptive management to incorporate information as it becomes available

Management advice - Resource Management; management decisions - management committee

2.12


22,29,30 Low na No need for mitigation from an ecological or economic perspective


2.13


22,29,30 Low na No need for mitigation from an ecological or economic perspective


Objective 3:




Responsibility


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3.1

MFMR, as custodian of a common resource (that policy requires to be utilized for the benefit of all Namibians), has a good understanding of the role of the fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

32,33, 34,35,36,37,38, 40, 41,43

Extreme 1 No research initiated or needs identified

PPE works with data provided by the industry; some discussion, but no research into long-term consequences of TAC or other management options; Participatory poverty assessment by UNAM which may incorporate fisheries

PPE should commence research programme; PPE and NatMIRC need to communicate about this objective; research objectives need to be developed

PPE

3.2


32,33, 34,35,36,37,38, 40, 41,43

Extreme 2

Good understanding of the role this fishery plays in the local economy

Currently the sardine TAC is more based on socio-economic objectives than scientific ones; poverty alleviation is not directly included in management plan but some of these criteria are considered in the rights allocation; but no follow up to ensure 'promises' made during the rights allocation process are implemented

Need to put in structures for enhancing collaboration between stakeholders and line ministries; more transparency required in TAC process setting and feed back of decision to NatMIRC

Management advice - PPE; management decisions - management committee


Pg 360





3.3


32,33, 34,35,36,37,38, 40, 41,43

Extreme 5 Regular meetings and a record of decisions

Relevant documents not available to the group; development plans along coast will address fishing sector as matter of course but unclear regarding extent

Track down development plan documents - Barbara Paterson to follow up

PPE, municipality, regional government

3.4

MFMR has sufficient capacity to address gazetted social priorities (e.g. poverty alleviation, job creation, food security, primary education, health care).

Moderate 1.5

No understanding of skill needs / Good understanding of skill needs

PPE's brief is very broad; currently understaffed; the capacity needs are not fully understood, especially in respect to additional socio-economic research that is required on a sectoral basis

Need assessment required (could consider out-sourcing; fill vacant posts

PPE

3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MFMR and other line ministries (e.g. Ministry of Education, Health etc) & NGOs are established.

32,33, 34,35,36,37,38, 40, 41,43

Extreme 1.5


Ministers are only communicating on cabinet level; all official communication with other ministries goes through the PS; there is some ad hoc communication; staff members can request to be incorporated in working groups or to develop new working groups; some working groups with representatives from various ministries exist

Initiate a transdisciplinary working group to meet this objective; investigate what forums already exist; pending the outcome of research

MFMR


Pg 361





Objective 4:

The wellbeing of the fishing industry is incorporated into management advise.



Responsibility

4.1 Individual rights are economically viable. Moderate 4

Long-term rights allocated and/or no performance review criteria developed

Majority of small rightsholders have grouped together to make rights viable

Criteria for evaluation are in the Act, but more regular review is required, field data collection needs to be undertaken, regular data update (requires that PPE capacity needs be addressed)

PPE, management committee


Moderate 6 Addressing conditions of certification

Medium term rights expire 2010; review process is about to start; performance criteria are in place and were used to allocate medium term rights

Formalise a review and update of the criteria


4.3


45 Extreme 3 Medium term rights allocated Some structures are in place PPE, management

committee

4.4


Moderate 2 Good understanding of funding needs

Many new rights holders don't have adequate business skills

Specific training required at company level Industry

4.5

All stakeholders possess adequate skills to participate in co-management

6 80% of required funding obtained

Joint research is taking place; joint research discussions; are taking place; Industry, Resource Management and PPE are represented on advisory council

Difficult to get the other 20% due to staff turn over etc, may never achieve 100%

Industry & MFMR


Pg 362





4.6

Effective training mechanisms are in place to provide EAF skills/awareness development to relevant members of the industry (e.g. responsible fisheries training courses)

1 No understanding of funding needs

Not been looked at yet, responsible fisheries course only for hake sector

Adapt responsible fisheries training course for the purse seine fishery

Industry

4.7 The fishery is eco-labelled. Low 1 No strategy

whatsoever

No market pressure, only relevant if there was over supply and other European markets became an option

N/A

4.9


55 Extreme 2 Some indication of intention to develop a strategy

First requirement is to have product to serve the market; difficult to form a strategy with the current supply situation; demand outstrips supply; flat cans were started but only while TAC was high; during low TAC it is more profitable to produce the round cans - more efficient to produce, better yields; facility exists; frozen cutlets are produced for overseas market

Market is not a problem, there is not enough fish Industry

4.10


45 Extreme 1.5


No clear understanding of the economic context, e.g. cost of production or spread of economic benefits among all people involved in the fishery

Identify data needs; improve current level of research

PPE


Pg 363





4.11


45 Extreme 4

Group meets regularly, agenda includes EAF considerations and minutes are taken

TAC does consider the economic implications

PPE to develop mechanisms for evaluation, feedback and transparency of management decisions made by the advisory council

PPE, Management Committee

Objective 5:




Responsibility

5.1


56 Moderate 7

All of above attend meetings regularly and broader stakeholder communication occurs (e.g. roadshows, public meetings etc)

Pelagic association represents all rights holders No action required


Pg 364





5.2


43,51,52,56 Extreme 2.5

Identify all affected parties / Key stakeholders are identified and invited to attend meetings

Informal working group discusses results regularly before and after surveys; ad hoc meetings

Formalise structure; develop TOR; appoint members

MFMR, industry, NGOs

5.3


43,51,52,56 Extreme 1 No policy in place Industry and NatMIRC participate in informal structure

Identify all relevant participants MFMR

5.4


43,49 Extreme 4

Activities towards implementation (e.g. identification of appropriate actions) but no mechanism for evaluation in place

PS or members of management sit on various boards (e.g. NamPort, Mines and Energy); extent of communication is unknown to the group

Improve feed back mechanisms MFMR


Pg 365





5.5


43,47,48 Extreme 5.5

Mechanism for strategy evaluation in place / Ongoing evaluation of strategy is taking place and the strategy is adjusted accordingly

Regular Monday meetings on management level; actions are not always taken; the issue of poor communication leading to conflicts between socio-economics and resource advice which was highlighted as an extreme issue in the original ERA

Review whether existing communications channels are adequate; ensure that actions are taken; develop performance review system for senior management

Senior managers

5.6


43,47,48 Extreme 3

Structures in place to ensure transdisciplinary collaboration and stakeholder co-operation (e.g. transdisciplinary working group or task group)

Ad hoc meetings as issues arise; communication is a big problem; never get all relevant people together

Review whether existing communications channels are adequate; Question: there is a need for regular meetings but is it practical?

Operational managers

5.7 Regional co-operation is operational and has been institutionalized (e.g. BCC)


Pg 366





a BCC 44,48 Extreme 3.5

Cooperating non-member but not participating / Cooperating non-member and participating

MoU signed with Angola; information sharing takes place but not all and it is not obligatory; not much data in Angola

Make use of the instruments that are in place for information sharing

Senior managers

Objective 6:




Responsibility

6.1


53 Extreme 3.5

Stakeholder meetings have been held / Fishery has contributed to the development of a draft NPOA or to the objectives of the NPOA

Draft management plan exist, which does not consider full EAF/ERA considerations; management plan cannot be implemented without adoption, but not PPE priority at present

Consult stakeholders; consult PPE; finalise management plan; present plan for adoption

PPE and operations (for next step)



Pg 367





a Seabirds NPOA na 3.5

75 % of EAF considerations are appropriately regulated / All EAF considerations are appropriately regulated

Draft presented to PS, but not yet adopted; not directly relevant to this sector

Present for adoption and begin implementation Senior management

b Shark NPOA na 5 Appropriate regulation, but inadequate penalty

Adopted, but not fully implemented; not directly relevant to this sector

PPE must put plan into action PPE

c IUU NPOA Moderate 6 Adequate penalty, but no follow through

Adopted, included in regulations and implemented

Need to increase awareness of NPOA mainly within the inspectorate


d Capacity NPOA Moderate 3

75 % of EAF considerations are appropriately regulated

Draft was circulated among industry

Finalise document and adopt plan PPE

Objective 7:




Responsibility



Pg 368





7.1


Moderate 1 No regulation of EAF considerations Act currently under review

Include EAF considerations in Act revision

Directorate of operations and DRM

7.2


Moderate 1 Not in place. No incentives identified.



7.3


Moderate


Patrols undertaken according to schedule; target has been reduced from 240 sea days/month/patrol vessel to 144; Sign of success and good financial planning; number of violations at sea is low and remained stable



Pg 369





b


7 100% implemented

Inspectors permanently at each factory; 24 advance notice is given on all landings at factories, in port and at sea no offloading is permitted without inspector present.


4 60% implemented


d Functional VMS system implemented 4 60% implemented



Pg 370






4 60% implemented

Not many cases are thrown out of court; Collaboration with Swakopmund magistrate court is good, Walvis Bay is improving; main issue is that magistrates change frequently and do not understand fisheries issues; Meetings with Judiciary take place twice a year.

Implement formal and regular meetings between compliance section and judiciary to better inform magistrates regarding the importance of fisheries related cases.





Objective 8:




Responsibility

8.1


Moderate 2

Either "no understanding of skill needs", or "mechanisms/opportunities for skills development in place and/or specific courses being developed"

Insufficient posts to meet the needs; more ecological research and refined stock assessment capacity is needed; at present only two posts include this in their TOR; some feel that there are sufficient posts, but not fully utilised, while others feel that there aren't sufficient posts

Fill vacant posts; A needs assessment should be undertaken urgently to inter alia ensure a common understanding of the needs; create and fill new posts with adequately skilled staff; investigate outside capacity through collaborations with other organisations; motivate for increased capacity

OPM to review; follow up from resource management/administration


Pg 371





8.2



Very few EAF skills currently available

Investigate opportunities within BCC SAP-Imp and Science Plan capacity development programmes; also investigate opportunities for collaborations with universities etc.; motivate for increased/appropriate skills

Resource management and general services (training committee)

8.3


46 Extreme 1


Although some funding is available, the additional requirements for EAF research needs are not well understood especially by management; limited communication between management and research in terms of budget allocations; burdensome administration process which leads to allocated budget not been accessed

An evaluation of funding needs and processes should be reviewed

Administration and resource management; senior management (economizing committee)

8.4 MFMR/MCM has adequate capacity to advise fisheries management decisions



Pg 372





a Directorate of Resource Management

54 Moderate 3

Mechanisms/ opportunities for skills development in place and/or specific courses being developed

Adequate number of positions but only 30% filled; inadequate salaries, communications, transparency, lack of leadership; lack of career path, lack of reward for good performance etc. are barriers to attracting and retaining staff

Develop incentives to attract/retain experienced scientific/technical staff; investigate opportunities to raise salary levels with the office of the prime minister

b Directorate of Policy, Planning & Economics (PPE)

Moderate 3

Mechanisms/ opportunities for skills development in place and/or specific courses being developed

Same as above Same as above

8.5 MFMR/MCM has the necessary skills to support EAF management i.e. the technical expertise which allows for the identification of the appropriate management tools (e.g. closed area/season, quota, gear restriction)

Resource management, PPE and general services (training committee)


Moderate 3.5

Less than 50% of required funding obtained / 50% of required funding obtained

Skills development exists; but serious shortage of staff; at current levels of capacity unlikely to reach 60% skill level within next 18 months

Fill posts, train people, increase salaries; retain people


Pg 373







EAF is not explicitly considered in PPE; still a gap in understanding; lack of awareness, but is included in Act - refers to ecological sustainable utilisation; but mentioned in strategic document

Raise awareness and understanding of EAF concept within PPE

8.6 MFMR/MCM has funding to facilitate adequate capacity, equipment and skills for implementing management decisions

Administration, PPE and resource management; senior management (economizing committee)


46 Extreme 4.5

Observer coverage is adequate to ensure that data is representative / Data collected that is representative and useful to inform research and management

Budgets are regularly cut; even if all the funding in place lack of capacity is a limitation

Improve financial management to avoid money that was budgeted for is spent elsewhere; prioritise activities that require funding


46 Extreme 4.5

Observer coverage is adequate to ensure that data is representative / Data collected that is representative and useful to inform research and management

Budgets are regularly cut; even if all the funding in place lack of capacity is a limitation

Improve financial management to avoid money that was budgeted for is spent elsewhere; prioritise activities that require funding


Pg 374






Moderate 7 All staff are at required levels

Could always do with more posts, but managing with current number of posts

Keep posts filled

8.8


54 Moderate 1.5

No understanding of funding needs / Good understanding of funding needs

Receive some training from NAMFI; in-house training required to address EAF

Create greater awareness for all compliance staff to understand EAF

Directorate of operations and general services (training committee) with input from DRM

8.9


Moderate 1


Funds for training needs to be increased

Administration and directorate of operations; senior management (economizing committee)

8.10


Moderate 6.5

Mechanisms for monitoring and evaluation of management are in place / Management plan is being implemented, evaluated and remedial action is being taken according to the evaluation

MFMR won a prize in 2007


Pg 375





Objective 9:




Responsibility

9.1


Moderate 2

Good data sheets designed to adequately capture all the relevant information (e.g. target and non-target species) for an EAF

Observers only sign off logbooks; few reliable data collected; but some observers collect good data; purse seiners fish close together so data verification should be possible; level of education not adequate

Observer training needs to be reviewed; training focuses on collecting scientific data but should also focus on familiarisation on equipment (echosounder, GPS etc.)

Fisheries Observer Agency; Inspectorate, Resource management

9.2


Moderate 5

Database is regularly updated OR Mechanisms are in place for verification (Score if either is true)

There is no formal training; but captains have done it for a long time and know what they are doing, they should be trained in the reasons why and for what purpose they are collecting the data etc.; this will make a big difference; there is no feed back to captains; data collection mechanism in place, but not data management system in place that ensures data verification

Develop regular feed back mechanism to help captains (& observers) understand why the data is being collected; data management procedures need to be reviewed, shortcomings identified and addressed

Resource Management and Directorate of operations, FOA?


Pg 376





9.3


New format

9.4


Moderate 3


There is no dedicated data manager; no central backups are stored safely; no training in international quality control; individual people are doing their best but there is no central policy; most people use their own data; there are compatibility issues; consultant has been hired to develop central system, but the system is not adequate and therefore not used; IOC has offered assistance; development of a data policy is possible in 18 months

Develop a data policy, how data should be handled, updated, identify responsible individuals; training required on section level to develop standards for quality control and archiving, backups etc.

Resource Management and Directorate of operations

9.5


32,33, 34,35,36,37,38, 40, 41,43,45

Extreme 3


Ad hoc data management system in place at present

Mechanisms for verification to be developed; data provision by industry requires enforcement, review data collection procedures; address requirements resulting from objective 9.4; additional capacity required

PPE


Pg 377





9.6


3


Same issues as objective 9.4

Develop a data policy, how data should be handled, updated, who has what responsibility; training required on all levels to develop standards for quality control and archiving, backups etc.

PPE

Objective 10:

External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc.)



Responsibility

10.1


Moderate 4.5


Some monitoring underway and included into management advice (sardine by-catch limitations in other fisheries)

Identify priority research needs for EAF regarding sardine; research into non-target species which may impact on sardine


10.2


57,58,59 Extreme 3 Research to address basic needs is underway

GENUS project has just been kicked off; NansClim

Await research results and then consider further action

Resource management

10.3

There is a good understanding of the effect of other industries (e.g.

60,61,62 Low N/A for this fishery at the moment Continue monitoring Resource management;

MET and MME


Pg 378





mining) on this fishery

10.4


65,66 Extreme 3.5


Good understanding by industry; some research been undertaken by consultants

Data collection would help the understanding within MFMR

PPE

10.5


32,33, 34,35,36,37,38, 40, 41,43, 63,64

Extreme 1 No research initiated or needs identified

Sectoral HIV/Aids awareness programmes, but little feedback to MFMR; still awaiting report

PPE should commence research programme; PPE and NatMIRC need to communicate about this objective; research objectives need to be developed

PPE


Pg 379


NAME AFFILIATION H. Z. Asino Directorate of Resource Management, MFMR J. Basson Directorate of Resource Management, MFMR M. Block Directorate of Operations, MFMR G. D'Almeida Directorate of Resource Management, MFMR J. Gamatham Directorate of Resource Management, MFMR J.P. Garises Genmir S. Goreseb Directorate of Policies, Planning and Economics, MFMR B. Grové Pelagic Industry F.T. Hangula Tunacor A. Heita Directorate of Resource Management, MFMR H. Holtzhausen Directorate of Resource Management, MFMR S. Iikela Directorate of Resource Management, MFMR T. Iilende Directorate of Resource Management, MFMR R. Kangumba Directorate of Resource Management, MFMR M. Koopmann Directorate of Operations/MFMR A. Kreiner Directorate of Resource Management, MFMR C. October Directorate of Policies, Planning and Economics, MFMR W. Pronk Pelagic Industry J-P. Roux Directorate of Resource Management, MFMR P.K. Schivute Directorate of Operations/MFMR N. Sheya Directorate of Policies, Planning and Economics/MFMR H. Skrypzeck Directorate of Resource Management, MFMR H. Ugam Directorate of Resource Management, MFMR A. van der Plas Directorate of Resource Management, MFMR


Citation: Uanivi U, Moroff N, Petersen SL and B Paterson. 2010. Ecological Risk Assessment Review for the Namibian Midwater Trawl Fishery. In Petersen S., Paterson B., Basson J., Moroff, N., Roux J-P., Augustyn, J. and D’Almeida, G. (eds) 2010. Tracking the Implementation of an Ecosystem Approach to Fisheries in Southern Africa. WWF South Africa Report Series – 2010/Marine/001.

Pg 380

Ecological Risk Assessment Review for the Namibian Midwater Trawl Fishery

Compiled by Uatjavi Uanivi, Nadine Moroff, Samantha Petersen, Barbara Paterson

1. Introduction

The midwater trawl fishery is the largest contributor by volume to the Namibian fishing industry and targets primarily cape horse mackerel Thrachurus capensis. The fishery operates using trawls within the water column to catch schools of adult horse mackerel. The horse mackerel resource is managed through a quota allocation method whereby a combined assessment is carried out and a Total Allowable Catch (TAC) is set for the resource after scientific recommendations are given to management. Since 1999, the quota allocation to the midwater fishery has been about 86% of the TAC. For both the pelagic and midwater fleets, fishing takes place year round. Restrictions on areas, size, depth and bycatch are adhered to. The midwater fleet is restricted to operate outside the 200 m bottom depth contour line. This restriction was imposed to avoid trawling in nursery areas as well as to prevent high bycatch of juvenile hake and sardine. The Ecological Risk Assessment (ERA) workshop for the Namibian Midwater Trawl fishery took place in Swakopmund, Namibia, from the 28th to the 30th of April 2005. A total of 54 issues were identified for this fishery by workshop participants, of which 36 (67%) were rated as being of ‘Moderate’ risk or higher. 41% of issues identified fell under the ‘Ecological Wellbeing’ component, where concern was raised about the variability in the estimates of horse mackerel biomass and the lack of confidence in certain parameters in the population model. Bycatch of threatened species of shark and seabirds were also considered to be of ‘Moderate’ risk. 8% of issues identified fell under the ‘Human Wellbeing’ component, with issues raising concern revolving around the fact that this fishery contributes significantly to food security in Namibia and West Africa. 51% of issues identified fell under the ‘Ability to Achieve’ component, with the lack of an approved management plan with reconciled objectives posing a significant threat to the wise management of this fishery. This is compounded by the fact that fines imposed by inspectors are not an adequate deterrent. The ERA review workshop for the Namibian Midwater trawl Fishery took place in Swakopmund, Namibia, on the 1st and 2nd of April, 2009. The workshop was hosted by the Ministry of Marine of Fisheries and Marine Resources (MFMR), and facilitated by Nadine Moroff and Uatjavi Uanivi of MFMR and Drs. Samantha Petersen and Barbara Paterson of


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WWF-South Africa. After wide distribution of invitations, the workshop was attended by officials from the three directorates of the Ministry of Fisheries and Marine Resources (MFMR), i.e. Directorate of Resource Management (DRM), Directorate of Policy, Planning and Economics (PPE) and the Directorate of Operations (DO), as well members of the fishing industry and the Fisheries Observer Agency (FOA). There were in total 29 participants and this allowed for a balanced and informative debate. Please see Annex 1 for a complete list of attendees. 2. Results


The complete list of objectives, detailing the fishery status and the prioritised next steps, are given in Table 1. Objective 1: The managing authority has a good understanding of the ecosystem impacts of the Namibian Midwater Trawl fishery including target, non-target and general ecosystem impacts

In terms of understanding life history parameters, that enable adequate stock assessment, the current research programme provides minimum results that are incorporated into stock assessment models. However, the reliability of model estimates is uncertain. Although otoliths are collected, ageing does not take place because of a shortage of appropriate staff to carry out this exercise. The ageing post needs to be filled urgently. It might, in the long run, be cheaper to outsource otoliths ageing or to engage with the BCC ageing working group. In terms of bycatch there is no information on Kunene horse mackerel. Deepwater hake and the tunas were not considered as they are rarely caught as bycatch by this fishery. For other bycatch species, information is collected in the MFMR bycatch project or has been collected in earlier BCLME projects. Species such as cetaceans are occasionally reported by observers. A priority next step for this objective will be to continue with the bycatch project, analyse the available data and provide a report to communicate results. It was also suggested that the Albatross Task Force be approached to monitor seabirds, sharks and cetaceans. For other bycatch that are unlikely to be vulnerable to the current level of exploitation data is collected in the bycatch project, and data on jellyfish are captured in the daily logsheets. The next action here will be to continue the bycatch project and collect data in surveys. Understanding of the ecosystem impacts of the fishery involves a good understanding of the fisheries dependent parameters that enable adequate stock assessment. It was observed that attainment of this objective has progressed and that the required next action will be to plan and undertake research that will allow a better understanding of the dynamics of CPUE,


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e.g. the effect of upgrading of the vessels. Adequate understanding of all fishing mortality is another important factor in the implementation of EAF in the midwater fishery. Here progress has been made, in that the research programme provides minimum results, which are incorporated into stock assessment e.g. data on the by-catch of juvenile horse mackerel caught in the sardine-directed purse seine fishery. The next action to take will be to plan and commence research on the effect of escape panels. Horse mackerel bycatch data from other fisheries also need to be analysed. Increased information sharing with Angola through the BCC is necessary. In order to better understand the spatial distribution and the transboundary nature of horse mackerel the national surveys need to be extended into southern Angola. More work is needed regarding the stock identity between Namibia and South Africa. Furthermore, there is a need to improve the understanding of the overlap of Trachurus capensis and Trachurus trecae. Comprehensive research has been carried out regarding fishing impacts on marine habitats and ecologically important areas during the 200m isobath experiments. However the study was limited to the area north of 19ºS latitude. The next step will be to publish the results from these experiments in peer reviewed literature. With regard to understanding the role of horse mackerel as both prey and consumer it was decided that progress has been made as far as step 4. It was suggested as next steps to collate all available information, initiate data collection for other species and update the food web model (ecosim). Stable isotope analysis was also proposed for understanding the trophic role of horse mackerel. Objective 2: Ecosystem impacts of fisheries are included into management advice

In order to incorporate the relevant life history parameters of horse mackerel into management strategies and appropriate management actions the horse mackerel management plan needs to be finalised. The management plan will also ensure that fisheries data inform management strategies and the implementation of management actions. The required action will be to implement management advice as understanding improves (cf objective 1). The spatial distribution of horse mackerel is not explicitly incorporated into stock assessment and other management advice because it is poorly understood. The national survey needs to be extended into southern Angola to cover the entire distribution area of the species as well as to ensure information exchange between Angola and Namibia through the BCC and the MoU (cf objective 1). There is little progress regarding the incorporation of stock identity or genetics into the stock assessment due to lack of information (cf objective 1). Management advice can only be implemented as the understanding improves. On the issue of bycatch species that are threatened, vulnerable or targeted by other fisheries, further research is needed to investigate if seabird entanglement is a problem in this fishery. Further action would be taken depending on the outcome of this research. In terms of regulating and minimising bycatch, current data analyses need to continue in order to reassess the need for management action. The bycatch project needs to be continued and further data be collected during surveys. In terms of general ecosystem considerations, the workshop highlighted that there is currently no quantification of the biomass needed to sustain healthy populations of


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predators and to ensure the stability of the ecosystem. It was suggested that before the next step could be proposed it is important to improve our understanding of the trophic role of horse mackerel (cf. objective 1). Objective 3: The social well-being of dependent fishing communities is accounted for in management advice

Progress towards this objective is generally slow. There is some understanding of the role of the fishing sector in addressing poverty in terms of employment numbers. However there are few initiatives regarding the poverty alleviation issues. A preliminary study or investigation into the role of the fishing sector in poverty alleviation was proposed as a next action as well as the forming of a working group across all directorates to coordinate effort and possible management actions. Workshop participants were confident in assuming that regional or local development plans include reference to the fishing sector. However because the relevant documents were not at hand, there was uncertainty regarding the level of detail and resolution of these inclusions. Thus, the next action will be to look up the relevant documents. MFMR does not have the structures to address social issues therefore it will be necessary to investigate the feasibility for MFMR to involve social scientists inter alia through collaborations with universities. Some inter-ministerial working groups are in place through which transdisciplinary collaborations can be effected. The next action would then be to investigate whether all relevant issues are addressed by the current working groups. Objective 4: The economic well-being of the fishing industry is maintained

To catalyse further progress with regards to economic viability of individual rights/quotas it was decided that there is a need to further investigate whether long-term rights allocations will increase their economic viability. This study could also identify other potential strategies to improve the economic viability of individual rights. An appropriate and fair rights allocation process is in place. However, as a next step the performance evaluation and criteria need to be more transparent, and appropriate action needs to be taken if criteria are not fulfilled. There is a need to investigate if the aims of long-term stability and financial security are being met. It was suggested that the issue of paper rights needs to be taken up in the performance review, and training has to be developed for improving the rights holders’ financial and business skills. Since there are no incentives for eco-labelling it was proposed that the incentives be evaluated. It was further suggested that market research should continue. Although MFMR has some understanding of the economic context of the fishery it was felt that the economic importance of this sector is larger than assumed. Therefore it was suggested that MFMR analyse economic data to better understand the importance of this fishery. The results of such analyses should be made available to stakeholders, because there is a need for better transparency of economic information and the validation of economic predictions.


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Objective 5: The managing authority has transparent and participatory management structures that ensure good communication and information sharing locally and regionally

Various working groups exist to facilitate communication with other government agencies. There is a need however to identify and prioritise these working groups on the basis of their importance or relevance to the implementation of EAF in this fishery. In terms of communication among senior managers within MFMR it was decided that there is a need to increase the efficiency of decision-making and feedback. Most communication among operational managers is on an ad hoc basis. The next steps would be to establish relevant working groups and to increase efficiency in terms of follow up on decisions and feedback. There are effective and cohesive industry associations, which are functioning well, however participatory management takes place on an ad hoc basis. The next step would be to investigate structures that would improve communication between stakeholders, including communication between PPE and the industry. Objective 6: Management plans incorporate EAF considerations

The draft management plan does currently not incorporate economic information. PPE and Operations will need to incorporate missing components and finalise the management plan. Relevant National Plans of actions were in various stages of development and implementation. For those plans, such as Seabirds NPOA and Capacity NPOA, which were drafted but not adopted, it was suggested as next steps to have these plans finalised, adopted and implemented. For the Shark NPOA, which was adopted and not fully implemented, it was suggested as a next step that PPE must put the plan into action. For the IUU NPOA which is adopted and implemented, the group felt that there is a need for increased awareness of the plan, mainly within the Inspectorate. Objective 7: Good compliance to regulations reduces ecosystem impacts of fisheries

Progress towards this objective is not well advanced. However the Act is currently under review, thus there is an opportunity to incorporate EAF considerations into the Act and to assess which violations should be referred to. There are no voluntary incentives in place to reward good compliance by the industry. The next action would therefore be to identify appropriate incentives. There is also a need to acquire more expertise for the special investigations unit and to increase the skills level of prosecutors in dealing with compliance issues. Problems with the VMS software need to be resolved. Objective 8: Sufficient capacity, skills, equipment and funding exist to support the implementation of an EAF

In terms good research capacity to adequately understand EAF it was argued that the current structure does not provide the necessary capacity for EAF. However there were counter arguments that implementation of EAF is more hampered by the fact that


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approximately 50% of the posts are not filled. As the next action for this objective it was suggested that restructuring should be undertaken as well as a review of the terms of reference of the current positions to meet the goals of an EAF. The vacancies need to be filled and outside capacity through collaboration with other organisations should be investigated. The EAF/Integrated ecological research-working group also needs to be revived. Potential opportunities for skills development within the BCC SAP-Imp and Science Plan capacity development programmes should be investigated as well as opportunities for collaboration with universities. Communication within the current EAF programme needs to be improved. Understanding the funding to facilitate adequate capacity, equipment and skills for EAF research was rated low. The need for an evaluation of funding needs and a review of administration processes were identified. MFMR’s capacity to advise fisheries management in both the DRM and PPE was rated low. Again the filling of vacant positions and a capacity needs assessment are required. EAF is currently not prominent among PPE staff. It was suggested that DRM should continue with skills development and develop mechanisms to retain experienced staff, and PPE would need to assess their skills requirements. There is currently good attainment of employment equity within MFMR and it was noted that the MFMR have won a prize for this in 2007. Capacity to address compliance issues was also highly rated. Nonetheless it was found necessary to monitor whether the current positions do reflect capacity needs. EAF is poorly understood among compliance staff. It was therefore suggested that the skills requirements for compliance staff be assessed and also to investigate opportunities for the WWF Responsible Fisheries course to be included in NAMFI training. The industry also does not have full awareness of the EAF. Therefore the next action would be to raise awareness of EAF among members of industry, e.g. through the WWF responsible fisheries training. There is a need to clarify skills requirements for co-management and to increase interaction between MFMR and industry. Objective 9: Good data procedures exist to support EAF implementation

An Ecosystem approach to fisheries management requires additional data. It was noted that although fisheries observers play an important role in attaining some of this information, they cannot be expected to collect all the data required of them from every set all the time. It was suggested that selected observers be trained to collect these additional data. The observers would also benefit from EAF training through the WWF Responsible Fisheries Programme. It was also suggested that data collection forms be reviewed to capture EAF requirements as well as reviewing the grading system, training programme and terms of reference for observers. Further steps would be to raise awareness amongst skippers about the importance of filling in log sheets accurately and providing feedback on how the information is used. The lack of data policy was considered a hindrance and the development of a policy on how data should be handled was suggested. Training is also required on section level to develop standards for quality control, archiving, backups etc. Similarly, there is a need to develop and implement mechanisms for verification of socio-economic data. The provision of data by industry requires enforcement, data collection procedures need to be reviewed so as to address the requirements resulting from MFMR’s role in poverty alleviation (cf objective 3). The FIMS database needs to be improved and put into operation.


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Objective 10: External impacts of fisheries are addressed (e.g. the effect of other sectors, other industries, climate change etc.)

Modelling of bio-economic and socio-economic interactions need to be undertaken. There are projects which deal with climate change and fisheries issues; however, as a next action research needs have to be identified because these projects are not directly related to horse mackerel. Recently, seismic surveys were undertaken in the middle of the horse mackerel fishing ground. MFMR and the industry need to consult with the Ministry of Mines and Energy to inform them of this potential interaction. An EIA should be conducted. There is good understanding of the effect of economic drivers on this fishery by industry. However, data collection is needed to improve the understanding within MFMR and there is also a need for increased communication between PPE and industry (cf objective 6). There is a need to improve the understanding of the effects of social factors on this fishery and workshop participants agreed that all existing data should be collated and further research prioritised.


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Objective 1:




Responsibility



Resource Management

a Horse Mackerel 4,5,8,18,44,45 Extreme 4 Preliminary data available, but not yet analysed

Otoliths have been collected, but not analysed; this severely limits the reliability of the model; annual surveys; good length frequency data; conflicting CPUE and survey biomass indices; natural mortality and recruitment is estimated by the stock assessment model, but without 'catch at age' data the results will be unreliable; industry are very concerned about the lack of scientific expertise, they have even offered to source additional expertise and request the ministry to review staff retention issues

Undertake ageing/catch at age research urgently - fill vacant 'ageing' post urgently or out source which might even cost less in the long run; engage with the BCC ageing working group; continue annual surveys (ensure vacant posts filled and research vessel availability)


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1.2 Good understanding of the fisheries dependent parameters that enable adequate stock assessment (e.g. fishing mortality, fishing effort) Resource Management

a Horse Mackerel 4,5,8,18,44,45 Extreme 4.5


Data collected from logsheets (estimates by skippers at sea), A forms (landing declarations), observers (fishing location) - this is incorporated into stock assessment; CPUE is increasing and survey biomass estimate is decreasing, this may be due to gear changes (e.g. freezing capacity by 40-50% may be effecting this); Another explanation might be that CPUE is dependent on finding aggregations and therefore it’s not a good index of stock health; VMS system in place, but currently this information is not accessible for use in stock assessment

Plan and begin research to better understand the changes in CPUE (e.g. effect of upgrading of vessels etc)

1.3 All fishing mortality including bycatch, poaching and discarding is adequately understood Resource Management


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a Horse Mackerel 46 Moderate 4 Preliminary data available, but not yet analysed

Escape panels in the cod end have been in place since the commencement of the fishery - the understanding of this effect on mortality is unknown; HM bycatch is recorded in other fisheries in log sheets and observer data, but not yet analysed; Angolan catches of HM are not currently available; purse seine fishery catches of HM are currently included in the stock assessment

Plan and begin research to better understand the effect of the escape panels on mortality; analyse data from other fisheries catching HM; increase information sharing with Angola through BCC

1.4 The spatial distribution (including transboundary distribution) is adequately understood Resource Management

a Horse Mackerel 1,2,3,18,20 High 4 Preliminary data available, but not yet analysed

Spawning areas may have changed over time; three transboundary surveys undertaken in the past, but seasonal and annual fluctuations in spatial distribution are poorly understood; in general transboundary nature of horse mackerel is not well understood; MoU between Angola and Namibia in place

Extend national surveys into Angola; ensure information exchange between Angola and Namibia especially through BCC and the MoU

1.5 The stock identity and/or genetics is well understood Resource Management


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a Horse Mackerel 1,2 Low 3 Research to address basic needs is underway

Stock separation between South Africa and Namibia - study done in early 90s by Naish; one stock in Namibia considered to be shared with Angola; in the north there are two species capensis and trecae- catches are lumped and stock identity is poor

Improve the understanding of the overlap of the two species i.e. capensis and trecae in the northern Benguela


1.6 The impacts of the fishery on bycatch or vulnerable species have been quantified Resource Management

a Kunene Horse Mackerel (trecae) 6,8,19 High 1 No research initiated

or needs identified No information available

b Hake (M. capensis) 7,8,19,20 High 5


Project underway to evaluate bycatch in general in this fishery

Continue bycatch project; analyse data and provide report

c Hake (M. paradoxus) 7,8,19,20 High 5


Very little caught in this fishery

d Snoek 8,10,19 Extreme 5


Captured in bycatch project Continue bycatch project; analyse data and provide report

e Seals 14,19,20 High 4 Preliminary data available, but not yet analysed

BLCME project collected some baseline information; not currently captured

Continue bycatch project; analyse data and provide report

f Tuna 8,19 High 4 Preliminary data available, but not yet analysed

Very little caught in this fishery


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g Sardine 8,9,19,20 High 5


Captured in bycatch project Continue bycatch project; analyse data and provide report

h Seabirds 13 Moderate 3 Research to address basic needs is underway

BLCME project collected some baseline information; currently not captured; this study revealed that very limited warp interactions were recorded, but on occasion gannets are captured in net entanglements; no ongoing monitoring

Approach the Albatross Task Force to monitor seabirds; Implement ongoing monitoring

i Sharks 12 Moderate 4 Preliminary data available, but not yet analysed

Caught very occasionally; information captured in observer data and in bycatch project

Approach the Albatross Task Force to monitor sharks

j Cetaceans 11 Low 3 Research to address basic needs is underway

Reported occasionally by observers

Approach the Albatross Task Force to monitor cetaceans


1.7 Monitor relevant catch and survey data Resource Management

a Jellyfish 15 High 5.5

Research adequately addresses priority needs / Research is producing comprehensive results beyond priority needs

Recorded in log sheets; not an issue for jellyfish populations, but is an operational (nuisance) for the fishery

Continue bycatch project and collecting data in survey


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b Gurnards, ribbonfish, buttersnoek etc. 8,16,19,20 High 5


Data collected in bycatch project and in surveys


c

Dentex, angel fish, chub mackerel, jacopever, dories, squid

8,10,19,20 Extreme 5


Data collected in bycatch project and in surveys; Note that dentex is a target in Angola; some indication of decreasing biomass of angelfish



1.8


20 High 6


No gear impact for midwater trawl fishery; comprehensive research undertaken with respect to inshore (200m) spawning and nursery areas including the effect of the midwater trawl fishery on nursery and spawning areas of other fisheries including hake, but study was limited to north of 19 degrees; presented at international fora

Results should be published in peer review literature

Resource Management


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1.9

There is good understanding of the trophic role, diets and foraging behaviour of predators that are dependent on horse mackerel species.

17,18 High 4 Preliminary data available, but not yet analysed

Seal and seabird diet sampling is currently monitored which indicate they consume some HM, but limited information for the north especially for Cape Cormorants; HM is an important component of the diet of some size classes; no understanding of the role of HM in the diets of sharks, cetaceans, large pelagics etc - some data from HM survey that requires analysis; little understanding of the trophic role of HM

Collate available information; initiate data collection for other species; update food web model (ecosim) including better communication between sections

Resource Management

1.10

There is good understanding of the diet and role of small pelagic species as secondary consumers in the trophic web.

17 High 4 Preliminary data available, but not yet analysed

Preliminary food web model; stomachs are collected on survey and contents analysed; some preliminary information on HM diet therefore exists

Could investigate stable isotopes and studies to monitor the trophic level of HM including ontogenic changes in diet of HM; collate available information and continue sampling

Resource Management

Objective 2:




Responsibility


2.1 The relevant life history parameters for the following species are incorporated into management strategies and appropriate management actions are implemented

Management advice - Resource Management; management decisions - management


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committee


Some relevant parameters are addressed by management measures (e.g. stock assessment, permit conditions, etc) / All relevant parameters are addressed by management measures

Currently managed by a TAC (based on best available information); minimum mesh size; 200m depth exclusion; management response to scientific advise is generally good

Finalise the management plan





Fisheries data is incorporated into the stock assessment which is the basis for management advice

Finalise the management plan


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a Horse Mackerel 46 Moderate 5


Currently only incorporated through model output of natural mortality estimates; laws prohibit discarding

Implement management advice as understanding improves


a Horse Mackerel 1,2,3,18,20 High 4.5


Spatial distribution is not explicitly included at present because of the poor understanding; managed as a national stock, Midwater catches in Angolan catches are included in the stock assessment, but other fisheries targeting HM are not included

Extend national surveys into Angola; ensure information exchange between Angola and Namibia especially through BCC and the MOU



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a Horse Mackerel 1,2 Low 2



Implement management advice as understanding improves




a Seabirds 13 Moderate 2


Should the research show that seabird entanglement is a problem then mitigation options should be investigated

Further action is pending outcomes of seabird entanglement survey


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a Kunene Horse Mackerel (trecae) 6,8,19 High 1


Due to low catches, it is considered not to require management action at present

Pending the analysis of the bycatch project then reassess the need or appropriateness for management

b Hake (M. capensis) 7,8,19,20 High 6


When sardine and hake bycatch is 5% of the total catch then move 10nm; bycatch levies in place


c Hake (M. paradoxus) 7,8,19,20 High 6


d Snoek 8,10,19 Extreme 1




e Seals 14,19,20 High 1




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f Tuna 8,19 High na Due to low catches, it is considered not to require management action at present


g Sardine 8,9,19,20 High 6


When sardine and hake bycatch is 5% of the total catch then move 10nm; bycatch levy 25 N$ per tonne


h Seabirds 13 Moderate 2


Although catches are low, gannets are endangered and therefore management action could be considered pending outcome


i Sharks 12 Moderate 2




j Cetaceans 11 Low 1






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2.8

Monitoring in place and relevant indicators/thresholds are developed for adaptive management


a Jellyfish 15 Negligible 5.5


Recorded in logsheets; not an issue for jellyfish populations, but is an operational (nuisance) for the fishery


b Gurnards, ribbonfish, buttersnoek etc. 8,16,19,20 High 5


Data collected in bycatch project and in surveys



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c

Dentex, angel fish, chub mackerel, jacopever, dories, squid

8,10,19,20 Extreme 5


Data collected in bycatch project and in surveys; Note that dentex is a target in Angola; some indication of decreasing biomass of angelfish



2.9


20 High 7

All relevant parameters are addressed by management action and good implementation occurs on the ground

200m depth exclusion in place; industry has experienced improved catches which may be a result of this closed area



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2.10


17,18 High 1


HM is not an ideal food source for top predators; north of Walvis Bay it’s the second most important food source after gobies (but neither are a high quality food source); from an industry perspective there is some concern that due to the decreased sardine populations top predators are turning to other species like HM and gobies

Nothing at this stage


2.11


17 High 1


First improve our understanding


Objective 3:




Responsibility

3.1 MFMR/MCM, as custodian of a common resource

23,24,25,26,27 Moderate 1.5

No research initiated or needs identified / Research

There is understanding in terms of employment numbers, but there are few initiatives

Preliminary study/investigation (collation of existing information

PPE


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(that policy requires to be utilized for the benefit of all Namibians), has a good understanding of the role of the fishing sector in addressing poverty alleviation (e.g. food security, employment, health, education).

needs/issues have been identified and prioritised

regarding the poverty alleviation issues; there is the food consumption trust; and their are market strategies; preliminary data are available; but no full understanding what the basic needs are; If we consider MFMR as a whole than aquaculture have a role to play in food security; HM industry 'feeds' 5 million people per day in Africa; main market DRC

especially relating to food security in Africa) of the role of this sector in poverty alleviation

3.2


23,24,25,26,27 Moderate 2.5

Some indication of intention to develop a strategy / Structures in place to ensure transdisciplinary collaboration and stakeholder co-operation (e.g. transdisciplinary working group or task group)

There are some structures in place National strategy documents address these issues; there is a need to address these issues from a fisheries specific perspective; It is unclear how the various government sectors should address poverty alleviation and how these various strategies should be co-ordinated; there is a need for a strategic approach rather than ad hoc contribution; each directorate has concrete targets in the National Strategic Documents; In case of fisheries this is mostly addressed by Aquaculture and Fish promotion Trust; there is a social responsibility; We do not understand the effect and importance of each fishery in terms of socio-economic; there is a lack of streamlining their

Form a working group across all directorates to coordinate effort and possible management actions; quantify research results in monetary terms;

Management advice - PPE; management decisions - management committee


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various efforts, we need focused management actions

3.3


23,24,25,26,27 Moderate 2.7

Contribution of fisheries to the well-being of the region are included in regional development plans, but group not sure regarding the extent of detail; plans are in place but there is a need to develop understanding; economic contribution of the economic role of fisheries is appreciated; community of Walvis Bay or Erongo region do not partake of all benefits resulting from the fishery; many employees are migrant workers(?) who take some of the economic benefits to other regions; issues are very complicated; there is a need for in depth research (obj. 30); the question is not whether the fishery is included and to which degree it is integrated with tourism and aquaculture, but the level of detail; (step 2: group has not seen the documents) (step 7: group assumes that the importance of individual fisheries is well known)

PPE, municipality, regional government


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3.4

MFMR/MCM has sufficient capacity to address gazetted social priorities (e.g. poverty alleviation, job creation, food security, primary education, health care).

Moderate 1 Capacity needs not understood

PPE are understaffed; many staff are inexperienced; statistics divisions is now filled; economic staff positions are filled; PPE is responsible for economics and planning; MFMR does not have the structures in place to address social issues; PPE has economic, policy, statistics and planning division

Investigate feasibility of employing social scientist or sourcing expertise from outside (e.g. Universities)

PPE

3.5

Transdisciplinary collaborations on issues of poverty alleviation, basic education and primary health care between MFMR/MCM and other line ministries (e.g. Ministry of Education, Health etc) & NGOs are established.

Moderate 3.5

Ad hoc communication and information exchange takes place / Regular communication and information exchange takes place

Some mechanisms exist but not all issues are addressed: Regional HIV committee brings all regional line ministries together; The Ministry of Gender Equality and Child Welfare has a working group but group not sure if MFMR part of this; MFMR participates in a inter-governmental WG addressing impact of climate change on economy; MFMR is part of the Erongo council; Nacoma (education, awareness raising) but is only considering fisheries as far as the coast is concerned; Park Advisory Committee; Group not clear to what extent social issues relating to fisheries are addressed.

Investigate whether all relevant issues are addressed by the current working groups;

MFMR


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Objective 4:




Responsibility

4.1 Individual rights are economically viable. Moderate 3.5

Structures in place to ensure transdisciplinary collaboration and stakeholder co-operation (e.g. transdisciplinary working group or task group) / Activities towards implementation (e.g. identification of appropriate actions) but no mechanism for evaluation in place

Individual rights in current form, i.e. 7 years are not viable; the viability depends on the value of the species; viability also depends on whether the right is used to create value or as a financial tool; currently 12 rights holders, individual quota have been reduced (13000t); individual rights holders work together

Further investigation if long term rights will increase viability, and identify potential other strategies



37,39 Extreme 6 Performance criteria implemented

Medium and long term rights are in place; performance criteria exist; some rights holders do not fulfil criteria, labour issues etc.

Performance evaluation and criteria need to be more transparent; review and strengthen the performance review; appropriate action need to be taken if criteria not fulfilled



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4.3


40 Extreme 3


The vision of the ministry is to ensure long-term sustainability; no new entrants invited into the fishery since 2001

Evaluation of whether aims are being achieved


4.4


Moderate 5.5

60% of staff/industry are at required levels / 80% of staff are at required levels

Some rights holders are paper right holders who do not participate in fishing; but they have business skills; most right holders in this sector have business and marketing skills; the issue with paper rights is their un-involvement in the fishing processes, but they do benefit financially

Paper right issue needs to be taken up in performance review. Develop training for financial and business skills

Industry

4.5

Effective training mechanisms are in place to provide EAF skills development to relevant members of the industry (e.g. responsible fisheries training courses)

1.5


Industry does not have full understanding/awareness of EAF; need to see the management actions re EAF implemented and will buy in; EAF skills develop through participation

Raise awareness of EAF; undertake skills assessment Industry


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4.6

All stakeholders possess adequate skills to participate in co-management

4 Less than 50% of staff/industry are at required levels

Which skills are required for co-management; scientific and economic data are considered at council level; Mechanisms are in place (council) but we don't know if all members have the skill; industry self regulate themselves; this is an ongoing process which is improved through interaction

Clarify skills requirement; increase interaction between MFMR and Industry

Industry

4.7 The fishery is eco-labelled. Low 1 No eco-labelling of

this fishery

No market incentive for eco-labelling; sector not participating in EU markets

Investigate incentives Industry

4.9


Moderate 3 Market research has been conducted

Alternative processing/marketing have been tested; Adding value to a low value fish is costly in terms of cost of production; Investigation into value adding have been done; markets do change; there is a possibility of fishmeal for human consumption (research in Norway); National policy requires value adding

Continue research PPE / industry

4.10


38 Moderate 4 Preliminary data available, but not yet analysed

Economic data are collected. There is good understanding of the economic context, but industry feels the economic importance of this sector is larger than the understanding by MFMR

Analyse economic data to better understand the importance of this fishery and make results available to stakeholders;

PPE


Pg 408




4.11


39 Moderate 4.5

Activities towards implementation (e.g. identification of appropriate management actions) but no mechanism for evaluation in place / Mechanism for strategy evaluation in place

Evaluation of processes is not ongoing, but ad hoc; information presented annually by PPE does give a clear indication of the value of the fishery and the implications to the state

Increase transparency of economic information; Validate economic predictions

PPE

Objective 5:




Responsibility

5.1


Moderate 7


Stakeholder association for midwater trawl fishery in place No action required Industry


Pg 409




5.2


39 Moderate 1 No structures in place

Ad hoc meetings between PPE, industry and NatMirc take place; apart from this no regular contact between PPE and industry; Information researched and presented by PPE is not always accurate and should be verified with industry to avoid that individual people attacked at council meeting; The focus of this forum is data verification; the liaison group does not include industry; better term to use would be co-management committee

Investigate structures to improve communication between stakeholders including improving communication between PPE and Industry;

MFMR, industry, NGOs

5.3


39 Moderate 1 Not everyone invited to meetings No committee MFMR

5.4


39 Moderate 3.5

Ad hoc communication and information exchange takes place / Regular communication and information exchange takes place

There are various existing forums; ad hoc collaboration with MME and MFMR exists; regular collaboration e.g. with MME was initiated through BCLME; some committees e.g. PAC are regular. Others have ad hoc meetings; new EU laws make it essential that links with maritime law, customs; health are formalised

Identify and prioritise the need for regularly meeting working groups

MFMR


Pg 410




5.5


39 Moderate 6

Regular meetings, a record of decisions and actions are taken

Structures are in place: weekly "Monday meeting"; Fisheries Management Committee meets monthly; Management Review Board (Director level) meets regularly; there is a lack of adequate follow up and feedback

Increase efficiency in terms of follow up on decisions and feedback to group and staff;

Senior managers

5.6


39 Moderate 3


Ad hoc communication when need arises; Liaison group exists between MCS, NatMIRC and FOA but is no longer functioning

Establish relevant working groups; Increase efficiency in terms of follow up on decisions and feedback to group and staff

Operational managers

5.7



Pg 411




a BCC 1,2,28,29 Moderate 2.5

Good understanding of shared stocks / There is knowledge of a shared stock and intention to share information

Understanding not complete regarding shared stocks Improved understanding Senior managers

Objective 6: Management plans incorporate EAF considerations

Issues Priority Step Description of step Comments (incl details of progress, barriers etc)


Responsibility

6.1


23,27b,39,40 Extreme 3.5

ERA has been undertaken to identify issues / Management plan has been developed and ERA issues are incorporated into the plan, but plan is not yet implemented

Draft management plan, ERA conducted; no economic information incorporated yet

Finalise management plan, incorporate missing components

PPE and operations (for next step)



Pg 412




a Seabirds NPOA 13 Moderate 3.5

Fishery has contributed to the development of a draft NPOA or to the objectives of the NPOA / The NPOA has been adopted but not implemented

Draft presented to PS, but not yet adopted

Present for adoption and begin implementation Senior management

b Shark NPOA 12 Moderate 5

The NPOA has been partially implemented but is not legislated (e.g. through permit/license conditions in relevant fishery)

Adopted, but not fully implemented

PPE must put plan into action PPE

c IUU NPOA Moderate 6

The NPOA has been implemented through regulations (e.g. Permit/license conditions)

Adopted, included in regulations and implemented

Need to increase awareness of NPOA mainly within the inspectorate


d Capacity NPOA Moderate 3

Fishery has contributed to the development of a draft NPOA or to the objectives of the NPOA

Draft was circulated among industry

Finalise document and adopt plan PPE?


Pg 413




Objective 7:




Responsibility


7.1


32,33 Extreme 1 No regulation of EAF considerations Act currently under review Include EAF considerations

in Act revision Directorate of operations and DRM

7.2


32 Moderate 1 Not in place. No incentives identified.



7.3


31,32,33 Extreme


Patrols undertaken according to schedule; target has been reduced from 240 sea days/month/patrol vessel to 144; Sign of success and good financial planning; number of



Pg 414




violations at sea is low and remained stable

b


7 100% implemented

Inspectors permanently at each factory; 24 advance notice is given on all landings at factories, in port and at sea no offloading is permitted without inspector present.



4 60% implemented


Special training for selected inspectors; employ a fisheries law specialist.


d Functional VMS system implemented 4 60% implemented


Bluefinger consultants to install software update and train staff.



Pg 415





4 60% implemented

Not many cases are thrown out of court; Collaboration with Swakopmund magistrate court is good, Walvis Bay is improving; main issue is that magistrates change frequently and do not understand fisheries issues; Meetings with Judiciary take place twice a year.

Implement formal and regular meetings between compliance section and judiciary to better inform magistrates regarding the importance of fisheries related cases.





Objective 8:




Responsibility


Pg 416




8.1


36 Moderate 3 Number of positions reflects capacity needs

At present only one of three research posts are filled in HM section; there is a need for additional capacity for ecological research; current structure does not provide the necessary capacity for EAF; need for restructuring to address EAF was taken to OPM; EAF working group constituted, but have not met recently; note that part of the group felt that because of the need for restructuring and reviewing of TOR we are currently at step 2, whereas others felt that some posts were not fully utilised and that approximately 50% of the posts are not filled therefore they felt more comfortable with 3.5

Undertake restructuring to meet the goals of an EAF; fill vacant posts; investigate outside capacity through collaborations with other organisations; revive the established EAF/integrated ecological research working group; review TORs


8.2


36 Moderate 2.5

Good understanding of skill needs / Mechanisms/opportunities for skills development in place and/or specific courses being developed

Very few EAF skills currently available; ERA workshops help to raise awareness of an EAF; in house "understudy" programme/skills transfer

Investigate opportunities within BCC SAP-Imp and Science Plan capacity development programmes; also investigate opportunities for collaborations with universities etc; motivate for increased/appropriate skills; increase communications in under study programme

Resource management and general services (training committee)


Pg 417




8.3


34,35,36 Extreme 1 No understanding of funding needs

Although some funding is available, the additional requirements for EAF research needs are not well understood especially by management; limited communication between management and research in terms of budget allocations; burdensome administration process which leads to allocated budget not been accessed

An evaluation of funding needs to be undertaken and administration processes should be reviewed

Administration and resource management; senior management (economizing committee)

8.4


OPM to review; follow up from resource management/ administration


Moderate 2 Good understanding of the capacity needs

Current structure does not provide the necessary capacity for EAF; Need for restructuring to address EAF was taken to OPM

Fill vacant positions; assess capacity needs


30 Moderate 2 Good understanding of the capacity needs

There is a need for restructuring to accommodate the needs for EAF; no socio-economic issues are currently addressed

Fill vacant positions; assess capacity needs

8.5

MFMR/MCM has the necessary skills to support EAF management i.e. the technical expertise which allows for the

Resource Management and General Services (training committee)


Pg 418




identification of the appropriate management tools (e.g. closed area/season, quota, gear restriction)


Moderate 2 Good understanding of skill needs

EAF must be included in management; skills development is taking place as long as there are people in the position - lots of vacant posts; an example of the need for more information sharing - the grid system implemented in the demersal trawl fishery: no understanding among compliance why it was first implemented then removed; details and results of this investigation are not known to inspectorate

Continuation of skills development; Retain experienced staff


Moderate 1 No understanding of skill needs

EAF is not prominent among PPE staff Assess skill requirements

8.6


Administration, PPE and resource management; senior management (economizing committee)


Pg 419





Moderate 3 Less than 50% of required funding obtained

Shortage of funds is an issue for all ministries; If budget is not used it will be cut; delays are frequently caused, sometimes due to other ministries, e.g. Ministry of works is responsible for feasibility studies which frequently acts as a barrier; although something has been budgeted for the money may have been spent elsewhere


Moderate 4.5

50% of required funding obtained / 65% of required funding obtained

Same as above


31,32 Moderate 7 100% of required positions filled

To create posts in the north, marine posts were shifted; this is currently OK but if the industry grows then there will be a need to create new posts

Monitor whether current positions reflect capacity needs

OPM to review; follow up from PPE/administration

8.8

The compliance section has the necessary skills to implement an EAF (including a good understanding of the regulations, the appropriate penalties and

21,22,31 Moderate 1.5


Receive some training from NAMFI; in-house training required to address EAF; there is a need to increase understanding among compliance staff

Assess skill requirements; investigate opportunities for the WWF Responsible Fisheries course to be included in NAMFI training

Directorate of operations and general services (training committee), Directorate of Resource Management to raise awareness?


Pg 420




evidence collection)

8.9


31 Low 1 No understanding of funding needs

FOA need funding to address equipment needs; no understanding of funding required to address EAF skills

Needs assessment; Consider increase of MFMR contribution to FOA

Administration and directorate of operations; senior management (economizing committee)

8.10


41,42 Extreme 6.5 90% of the employment equity goals are met

MFMR won a prize for this in 2007

Objective 9:




Responsibility


Pg 421




9.1


Moderate 2.5

Good data sheets designed to adequately capture all the relevant information (e.g. target and non-target species) / Training programme implemented to ensure that observers are adequately skilled in data collection

Many grade 1 observers do not have the necessary skills; limited incentive to improve skills e.g. obtain grade 2 level; some observers have attended the WWF Responsible Fisheries training Programme; 100% observer coverage, but frequently the data is poor especially additional EAF information; observers observe compliance and collect fisheries data, but there is a perception that their priority is compliance observation; observers experience some difficulty communicating with Russian speaking staff and equipment

Provide additional training for selected observers on the identification of bycatch - some feel that this goal is too high and rather optimistic; attend EAF training run by WWF Responsible Fisheries Programme; data collection forms need to be reviewed to capture EAF requirements; review grading system, training programme and TOR for observers

Fisheries Observer Agency; resource management

9.2


Moderate 5

Functional system to get logbooks from vessels to MFMR in efficient and timely manner

Some skippers only fill in trawl position etc, but not catch per day (this only happens occasionally); log sheets focus on species of commercial importance; log sheets reflect production, but not complete catch

Consider EAF observers rather than expanding logsheets for an EAF; raise awareness amongst skippers about the importance of filling in logsheets accurately; feedback to skippers of how the information is used etc might help to facilitate this


9.3 Accurate landing declaration information informs the management of the sector.



Pg 422




9.4


Moderate 3


There is no dedicated data manager; no central backups are stored safely; no training in international quality control; individual people are doing their best but there is no central policy; most people use only their (?) data; there are compatibility issues; consultant has been hired to develop central system, but the system is not adequate and therefore not used; IOC has offered assistance; development of a data policy is possible in 18 month

Develop a data policy, how data should be handled, updated, identify responsible individuals; training required on section level to develop standards for quality control and archiving, backups etc


9.5


23,24,25,26,27 Moderate 3


Eco-database for the economic data exists; most information is stored on spreadsheets; data needs to be verified; ad hoc data management system

Develop and implement mechanisms for verification; data provision by industry requires enforcement, review data collection procedures; address requirements resulting from objective 30; PPE requires additional capacity

PPE

9.6


3


FIMS not working Improve database

PPE


Pg 423




Objective 10:




Responsibility

10.1


46 Moderate 2


There is some data available; there is interaction between midwater trawlers and purse seiners and midwater trawlers and demersal trawlers; preliminary socio-economic study undertaken previously

Modelling of interactions, bio-economics and socio-economics need to be undertaken


10.2


44,45 High 1.5


Genus project has just been kicked off; Nansen Climate change project (NansClim); both projects not directly related to HM; some work on recruitment variability and the effect of environmental change

Identify research needs and investigate where these can be incorporated into genus or NansClim project

Resource management

10.3


47,48,49 Low 1 No research initiated or needs identified

Seismic surveys recently undertaken in the north are in the middle of a premium fishing ground; Cape Frio harbour is unlikely to be implemented

Consult with Department of Mines and Energy to inform them of this potential interaction; engage in EIA

Resource management; MET and MME


Pg 424




10.4


50,51,52,53,54 Extreme 3


Good understanding by industry; some research has been undertaken by consultants for PPE

Data collection would improve the understanding within MFMR; increase communications between PPE and industry

PPE

10.5


50 Moderate 4 Preliminary data available, but not yet analysed

HIV/Aids committee does distribute fish donated by the industry; training courses take place; catholic aids action in WB is also multipurpose and works with fishing companies; Alexander Forbes conducted a report on the impact of AIDS on MFMR (excluding industry); companies have done individual research/knowledge of social factors; awareness of issues exists and national priorities are clear, but no research regarding all social factors

Collect existing data; and identify and prioritise further research

PPE


Pg 425


NAME AFFILIATION Mr. Ruben Hamunyela Fisheries Observer Agency (FOA) Mr. Mathias Iiyambo Fisheries Observer Agency (FOA) Ms. M. Sheya Directorate of Policies, Planning & Economics (MFMR) Mr. S. Goreseb Directorate of Policies, Planning & Economics (MFMR) Mr. Harold Ugam Directorate of Resource Management (MFMR) Mr. Jan Arnold Namsov Fishing Enterprises Mr. Titus Iilende Directorate of Resource Management (MFMR) Mr. Rudi Cloete Directorate of Resource Management (MFMR) Mr. Beau Tjizoo Directorate of Resource Management (MFMR) Dr. Carola Kirchner Directorate of Resource Management (MFMR) Ms. Graca D’Almeida Directorate of Resource Management (MFMR) Mr. Calie Jacobs Erongo Fishing Enterprises Ms. Antoinette Heita Directorate of Resource Management (MFMR) Ms. Hilma Asino Directorate of Resource Management (MFMR) Mr. Peter Shivute Directorate of Operations (MFMR) Mr. M. Koopmann Directorate of Operations (MFMR) Mr. Malcolm Block Directorate of Operations (MFMR) Mr. Johnny Gammatham Directorate of Resource Management (MFMR) Mr. P. Hitula Tunacor/Belluga Mr. Johannes Iitembu Directorate of Resource Management (MFMR) Ms. Anja van der Plas Directorate of Resource Management (MFMR) Dr. J-P. Roux Directorate of Resource Management (MFMR) Mr. Christo October Directorate of Policies, Planning & Economics (MFMR) Dr. Johannes Holzhausen Directorate of Resource Management (MFMR) Mr. Richard Kangumba Directorate of Resource Management (MFMR) Mr. John Kathena Directorate of Resource Management (MFMR) Mr. Paul Kainge Directorate of Resource Management (MFMR) Ms. Janine Basson Directorate of Resource Management (MFMR) Dr. Anja Kreiner Directorate of Resource Management (MFMR)