Report on the Second Ecological Risk Assessment (ERA)

Review Workshop for the Small Pelagic Fishery

22-23 August 2012

Craig Smith & Alice Johnson

Introduction

As a signatory nation to the 2002 World Summit on Sustainable Development (WSSD), South

Africa is committed to develop and implement an Ecosystem Approach to Fisheries (EAF)

Management. An Ecosystem Approach is based on two main principles. The first relates to

maintaining and enhancing the ecosystem health as a whole and the second refers to

balancing diverse societal needs and values. Towards this goal an Ecological Risk Assessment

(ERA) of the small pelagic fishery was conducted in 2005 to identify priority issues and

management actions based on a methodology developed by Fletcher et al. 2002 and refined

for local use (Nel et al. 2007, Paterson and Petersen 2010). This was followed by the first ERA

review workshop of the small pelagic fishery in July 2009, which was aimed at tracking

progress in addressing the issues raised in the ERA workshop in 2005.

The second ERA review workshop for the small pelagic fishery took place in Cape Town, South

Africa, between the 22 and 23 of August, 2012. The workshop was hosted by the Department

of Agriculture, Forestry and Fisheries (DAFF), and facilitated by Mr Craig Smith (DAFF). After

wide distribution of invitations, the workshop was attended by a total of 33 participants.

Attendees were from DAFF (Marine Resource Management, Fisheries Research and

Development, International Relations), World Wide Fund for Nature, Cape Nature, University

of Cape Town, Birdlife South Africa, University of the Western Cape (Institute for Poverty, Land

and Agrarian Studies), South African Pelagic Fishing Industry Association, Rhodes University

and interested parties. This allowed for a balanced and informative debate on the tracking of

progress since the last two workshops which were conducted in 2005 and 2009.

Please see Annex 1 for a complete list of attendees.

Methodology The issues identified in the eight Ecological Risk Assessments undertaken in Namibia and South

Africa were synthesized (Nel et al. 2007) and formed the basis for the development of ten

generic objectives for implementing an Ecosystem Approach (Paterson and Petersen 2010).

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

2. Ecosystem impacts of fisheries are included into management 3. The social wellbeing of dependent fishing communities is accounted for in

management 4. The economic wellbeing of the fishing industry is maintained 5. The managing authority has transparent and participatory management structures

that ensures good communication and information sharing locally and regionally 6. Management plans incorporate EAF considerations 7. Good compliance to regulations reduces ecosystem impacts of fisheries 8. Sufficient capacity, skills, equipment and funding exist to support the

implementation of an EAF 9. Good data procedures exist to support EAF implementation 10. External impacts of fisheries are addressed (e.g. the effect of other sectors, other

industries, climate change etc)

Each of these general objectives was divided into more specific operational objectives. For

each operational objective a seven step implementation process is envisaged. Each step

reflects a particular degree of progress towards putting in place requirements for achieving

the objective in question. The dissection of each operational objective into several process

steps allows for consistency and transparency in decision making. Through identification of the

current step the status quo for each sector can be determined relatively simply. Consideration

of the process steps also facilitates discussion of what is required to move towards the next

step. In the course of these discussions existing barriers can be identified. This identification is

necessary to decide which concrete actions need to be taken in order to move ahead.

The template used in the workshop is the result of a broad participatory process. The initial

objectives were developed from the outputs of eight workshops with over 200 participants

and the process steps were developed in consultation with various key stakeholders prior to

the workshop. Both the operational objectives as well as the process steps allowed for

structured discussion and reflect the criteria for the review. In order to allow for the

communication of progress across indicators, objectives and fisheries, a tracking tool was

developed using Netweaver and adapted for use in excel.

On day 1 workshop participants were divided into four groups: Group 1 reviewed the objective

pertaining to ecosystem research; Group 2 reviewed objectives pertaining to ecosystem

management and data management; Group 3 reviewed objectives pertaining to social and

economic wellbeing of fishing communities and participatory management structures, and;

Group 4 reviewed objectives pertaining to management plans, compliance, capacity and

external impacts. Ideally each focus group was to include participants from every stakeholder

group to allow for cross disciplinary debate. However, due to the uneven representation not

all stakeholders could be represented in each group.

Each group was asked to:

identify the current process step;

make note of achievements, or barriers that are hindering progress or any other comments;

identify priority next steps

On Day 2 each group was required to provide a key summary of their reviewed objectives for

discussion in plenary. As the workshop was not able to conclude its business on Day 2,

objectives 9 and 10 were concluded via correspondence. In the absence of MCS personnel at

the workshop a number of issues were also deferred to them for input via correspondence.

Results The overall percentage of implementation for the small pelagic sector was scored at 51% for

the current ecological risk assessment review and is 3% lower compared to the review scores

of 2009. The main contributors for the decline in implementation were attributed to the

reduced scoring for EAF objectives pertaining to skills, capacity and equipment, and data

(Figure 1). Areas of notable improvement in the implementation of EAF objectives were in

terms of ecological understanding, economic wellbeing and ecological management (Figure 1)

Fishery status and next steps

Objective 1: The managing authority has a good understanding of the

ecosystem impacts of fisheries including target, non-target and general

ecosystem impacts

Good progress has been made to improve DAFF’s understanding of the impact of purse-seine

fishing on target and non-target species. Some of the highlights, include: 1) the

multidisciplinary work in testing the hypothesis of multiple sardine stocks; 2) development of a

new Operation Management Procedure (OMP), OMP 13; 3) updated assessment for horse

mackerel, and: 4) investigation of the possible impact of purse seine fishing on penguin

breeding success. Ageing studies and studies on environmental factors affecting recruitment

were considered to be key areas for future research. Of concern was the decline in monitoring

of catches and landing. The importance of a fully functional monitoring and onboard observer

programme was also stressed.

Objective 2: Ecosystem impacts of fisheries are included into

management

Good progress has been made by DAFF to include ecosystem effects into management advice.

Some of the highlights, include: 1) all available life histories are taken into account in OMP

testing; 2) development of a new OMP taking into account possible multiple sardine stocks; 3)

management measures have been implemented to reduce bycatch of non-targeted species; 4)

management measures are in place to mitigate dumping at sea, and; 5) island closure

feasibility study restrictions on purse seine fishing has been incorporated in permit conditions.

The workshop delegates recommended implementing the new OMP once the OMP has been

completed and adopted.

Objective 3: The social wellbeing of dependent fishing communities is

accounted for in management

Little progress has been made in addressing social wellbeing of dependent fishing

communities, and delegates scored this objective poorly as was done in 2009. It was

acknowledged that the implementation of the small-scale fisheries policy and the initiation of

the anchovy for human consumption project could be beneficial to the social wellbeing of

dependent fishing communities. It was also strongly recommended by the group that DAFF

appoint social scientists in order to address social concerns in the overall management of the

sector.

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

Good progress has been made to address the economic wellbeing of the fishing industry when

compared to the ERA review conducted in 2009. This was largely attributed to the

implementation of the rights transfer policy, improved co-management capability, and

investigating the utilization of anchovy for human consumption. Economically unviable quotas

for small rights holders remain a challenge, and delegates also emphasized a need for

dedicated economic research in this fishing sector.

Objective 5: The managing authority has transparent and participatory

management structures that ensures good communication and

information sharing locally and regionally

This was the highest scoring objective in the ERA review in 2009 and in 2012. The workshop

delegates acknowledged that communication and information sharing has worked well

through the scientific working group and management working group structures for this

fishery. It was also noted that the fishery is well organized in terms of associations, which have

been recognized as industrial bodies by DAFF. A minor improvement noted for the immediate

future was for more regular meetings to be held between the fishing sector and Compliance.

Another noteworthy recommendation was to establish communication channels with other

government departments on an operational level.

Objective 6: Management plans incorporate EAF considerations

No progress has been made toward achieving this objective as there is still no small pelagic

management plan in place to incorporate EAF considerations. In addition, no progress has

been made on drafting a National Plan of Action for Illegal, Unregulated and Unreported

fishing, nor has any drafting progress been made on the National Plan of Action for Capacity.

Objective 7: Good compliance to regulations reduces ecosystem impacts

of fisheries

The workshop felt that the largest improvement towards meeting this objective was the

management measures implemented to mitigate dumping e.g. within season transfer of

quotas, the use of “bolyn” transfers, the establishment of a functional area controller network,

100% monitoring of landings, and time-area closures. Tip offs regarding dumping at sea have

been immediately dealt with by the Department. However, the lack of sea patrols and

termination of the onboard observer programme was raised as a huge concern.

Industry generally did not perceive any benefit in applying for MSC certification, but a number

of factories are currently considering subscribing to the International Fishmeal and Fish Oil

Organisation (IFFO) which currently certifies fisheries products according to responsible

management of the fishery, human health, quality, best practice and animal welfare

considerations. At the time of writing this report one company had received IFFO(RS)

certification since holding the workshop.

Objective 8: Sufficient capacity, skills, equipment and funding exist to

support the implementation of an EAF

This was the lowest scoring objective in 2012 and compared with the 2009 review it indicated

that the management authority was regressing in this objective. Some of the critical shortfalls:

1) insufficient socio-economic researchers; 2) funding needs are understood, but generally too

little funding was received to implement projects; 3) DAFF’s current structure to support EAF is

inadequate; 4) research and patrol vessels are not functional under the current management

of the SA Navy, and 5) the split between DEA and DAFF has negatively impacted upon the

ability of government to effectively implement EAF. Some highlights included the EAF training

undertaken by a few DAFF officials, DAFF is in partnership with a number of organisations in

implementing EAF and that Fisheries Management has generally met its equity targets.

Workshop delegates noted that significantly more officials require training in order to make a

significant difference in the implementation of EAF.

Objective 9: Good data procedures exist to support EAF implementation

Fisheries data are obtained from a number of sources including logbooks, fisheries

independent surveys, monitors and observers. Unfortunately, data are not centralized and

work is currently being conducted to develop a centralized database. The appointment of a

database manager has also been identified as important for maintaining the database. Socio-

economic data are still regarded to be lacking and requires the appointment of socio-

economists– see also objective 10. The meeting also strongly emphasized the need for an

observer programme to be urgently re-established as the observer contract was noted to have

ended in March 2011.

Objective 10: External impacts of fisheries are addressed (e.g. the effect

of other sectors, other industries, climate change etc)

Good progress has been made towards understanding the impact of the possible introduction

of the herpes virus on the small pelagic resources. Economic drivers and social factors for the

fishery are generally well understood, but there is insufficient socio-economic research

conducted by the Department due to a lack of capacity. Currently, there are only two

economists available to service 22 commercial fisheries and DAFF does not have any social

scientists. The potential Impacts of mining on the small pelagic resources are not well

understood and concerns are increasing due to the increased mining activity, particularly for

phosphates.

0

20

40

60

80

100

120P

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in te

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of

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rce

nta

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EAF Objectives

Fig. 1. Comparison of progress made per EAF objective between the small pelagic ERA review s conducted in 2009 (grey bars) and 2012 (black bars).

The Way Forward

Annual ERA review workshops provide an excellent way of monitoring and stimulating EAF

implementation in a transparent and participatory manner through consultation and

discussion amongst diverse stakeholders. The advantage of this generic approach is that it

allows for comparison, interrogation and reporting at any level. For instance, operational

managers can track progress of management actions in a participatory and transparent

manner to develop a work plan to address issues. A middle manager can use the tool to

compare progress at a sector or fishery level or even compare progress between fisheries. A

senior manager can use the tool to track EAF implementation between fisheries, compare

implementation of various objectives (e.g. how is their organisation fairing in addressing

human wellbeing issues by comparing ecological issues or risks) or investigate progress in

over-arching issues (e.g. the development a network of representative marine protected

areas) that could not be tackled by a single sector. In this way, he or she could apply the wise

use of limited resource, identify gaps in progress and reward or praise progress. At a policy

level, including reporting on inter alia WSSD commitments, EAF implementation progress can

be tracked and reported on by means of a simple effective diagram (Figure 1), without placing

additional burden on managers.

Some aspects of the ERA review are not sector specific. There are objectives which address all

sectors equally, e.g. objectives referring to institutional capacity. Similarly, there are individual

actions which will create progress towards more than one objective, e.g. putting in place

mechanisms for increasing the knowledge base regarding the socio-economic context of

fisheries. Once several ERA reviews have been conducted it will be possible to extract these

generic objectives and actions which will address more than one sector.

In terms of the outcomes of the 2012 small pelagic ERA review workshop it can be concluded

that the small pelagic fishery is underpinned by strong ecosystem research, fisheries

management and co-management structures. Fundamental gaps in progress have been

identified as the lack of capacity and funding to address social and economic aspects. This was

also noted as a general concern for all commercial fisheries in South Africa and requires the

appointment of social scientists and more economists at DAFF as a priority. The workshop

recognized that several issues, upon which the review was based, need to be updated from

those relevant in 2005 (when the ERA was undertaken), so as to better account for progress

and to focus actions on priority issues under the ten broad categories reviewed here. The

meeting recommended that a full ERA would be warranted in the near future. Sector specific

elements to be addressed in the next 18 months are to

Finalise and implement the new OMP.

Conduct ageing studies.

Continue implementing the island closure feasibility study.

Develop centralized databases and appoint a database manager.

Re-establish an on board observer programme.

Draft a small pelagic fishery management plan.

Table 1: Workshop output

Objectiv

e 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 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)

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

a Sardine 1,6,12 High 5

Progress in stock-specific assessment

models; models with time-varying

natural mortality being used as a

robustness test for time-invariant natural

mortality (M); lack of accurate sardine

ageing data problematic precludes a

higher score; no spatialized mortality

estimates at present; spatialized growth

Prioritize ageing and explore

methods to improve accuracy

(e.g. otolith morphometrics vs.

age); survey length frequency

(LF)( issue resolved; estimate M

east and west using OSMOSE (Y

Shin); stock-specific assessment

models will give spatialized M;

compare temporal variability in M

Ageing - FRD: PEL;

spatialized Model

- UCT and

MARAM;

temporal Model -

UCT

rate dependent on improved ageing using OSMOSE and ECOPATH

b Anchovy 1, 15 Modera

te 5

Increase effort on estimating anchovy

mortality (ecosystem perspective);

progress on this in assessment model but

need better ageing data

Prioritize ageing and explore

methods to improve accuracy

(e.g. otolith morphometrics vs.

age); compare temporal

variability in M using OSMOSE

and ECOPATH; update survey LFs

Ageing - FRD: PEL;

temporal Model -

UCT; survey

Length Frequency

- FRD: PEL

c Redeye 16,17,1

9

Modera

te 4

Three years of ageing data (2005-07) now

available; biological data continues to be

collected during surveys; New Redeye

Fishery Task Team recommended

experimental fishery (especially on SC);

agree to reduce PUCL if redeye biomass <

1 000 000t; if redeye fishery expands

then bycatch of adult sardine likely to

increase proportionally, will be

accounted for in sardine assessments

Expand temporal coverage of

ageing data (relative to other

priority species in DAFF given

limited ageing capacity); expand

analysis of distribution, biological

data and life history parameters

from survey samples; expand

analysis of spatio-temporal

patterns in catches; do redeye

assessment

Ageing - FRD:

PEL; redeye

biology and

catches -FRD: PEL;

assessment -

MARAM & FRD:

PEL

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

a Sardine 1,6,12 High 3

Examined sardine scale deposition

patterns from elsewhere but of little

assistance; recruit surveys continuing;

little or no effort on examining sardine

environment/recruitment interactions;

some examination of impact of spawner

distribution (and seasonality?) on

recruitment but insufficient; no progress

on improving sampling of sardine recruits

(requires more ship's time hence cross-

cutting prioritization) and priority

reassessed post assessment update; no

geostatistical/GLM/GAM analyses to

improve acoustic biomass estimation; no

progress on Dawit Yemane's BCC project

on environmental determinants of

recruitment success; recruitment EoCA

from winter spawning informs southern

stock assessment model recruitment

uncertainty;

Continue examination of impact

of spawner distribution (and

seasonality?) on recruitment

strength;

geostatistical/GLM/GAM analyses

if student available; estimate CVs

on recruitment EoCA from winter

spawning - also dependent on

improved ageing; investigate

environmental determinants of

recruitment variability

Spawner

distribution and

recruits - FRD:

PEL; geostats etc -

MARAM; EoCA

recruitment CV -

FRD: PEL; sardine

environment/recr

uitment - FRD:

PEL

b Anchovy 1, 15 Modera

te 3

Examined anchovy scale deposition

patterns from elsewhere but of little

assistance; recruit surveys continuing;

little or no effort on examining anchovy

environment/recruitment interactions;

no progress on Dawit Yemane's BCC

project on environmental determinants

of recruitment success; BCC anchovy

target strength project supports current

anchovy TS relationship

Update/revisit recruitment

prediction analyses (using SOMs,

expert systems, multivariate

approaches); investigate

environmental determinants of

recruitment variability

Revisit anchovy

recruitment -

FRD: PEL & UCT;

anchovy

environment/recr

uitment - FRD:

PEL

c Redeye 16,17,1

9

Modera

te 3

Time-series of commercial and survey

data has been compiled and initial

assessment model attempted; no

progress on Dawit Yemane's BCC project

on environmental determinants of

recruitment success; no progress on

estimating target strength but not

considered high priority as relative

abundance time-series exists

Estimate redeye TS ; investigate

environmental determinants of

recruitment variability

TS - SWG-PEL;

redeye

environment/recr

uitment - FRD:

PEL

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

a Sardine 2,3,5 High 3

Decline in monitoring of sardine

catches and collection of biological

data from field stations, especially in

recent years

Continued monitoring of

pelagic catches - needs

strengthening i.t.o. monitors

and field stations, and

should be highlighted

especially in light of recent

experiences (no monitoring

at start-2012); land-based

observer data from Gans Bay

imminent and observers to

collect biological data

Monitoring of

catches -

MRM/FRD/Co

mpliance

b Anchovy 2,3 Moderate 3

Decline in monitoring of anchovy

catches, especially in recent years

Continued monitoring of

pelagic catches - needs

strengthening ito monitors

and field stations, and

should be highlighted

especially in light of recent

experiences (no monitoring

at start-2012); observers to

freeze samples for

subsequent biological

analysis

Monitoring of

catches -

MRM/FRD/Co

mpliance

c Redeye 16,17,19 Moderate 3

Decline in monitoring of redeye

catches , especially in recent years

Continued monitoring of

pelagic catches - needs

strengthening ito monitors

and field stations, and

should be given a higher

priority especially in light of

recent experiences (no

monitoring at start-

2012);observers to freeze

samples for subsequent

biological analysis

Monitoring of

catches -

MRM/FRD/Co

mpliance

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

a Sardine 7,8,9 High 4

Re-analysis of observer data showed

no effects but mentioned further

analysis under Bayesian analysis

Continue monitoring via

observer coverage

Observer

analysis - FRD:

PEL

b Anchovy 13 Low 5

Not considered a problem so no

analyses

Continue monitoring via

observer coverage

Observer

analysis - FRD:

PEL

c Redeye 16,17, 19 Moderate 5

Not considered a problem so no

analyses

Continue monitoring via

observer coverage

Observer

analysis - FRD:

PEL

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

a Sardine 3,4 High 4.5

Continue monitoring of distributions;

eastward shift examined (BCC project)

by Dawit and Nandi through habitat

characterisation (assuming one stock);

Kate Watermeyer (UCT) also

examining sardine distribution shift

(assuming one stock); biological data

for hypothesizing multiple stocks

updated and consolidated; eastward

shift resulting from differential growth

of putative southern stock

incorporated into stock-specific

assessment models; substantial

research effort but little

understanding as yet; transboundary

issues not considered important

Continue monitoring;

complete analyses re shift;

synthesize distributional

shift data; continue multiple

stock analyses; improve

stock-specific assessment

models; publish paper

(NansClim)

Continue

monitoring -

FRD: PEL;

complete

analyses re

shift - UCT;

synthesize

distributional

shift data - FRD:

PEL; continue

multiple stock

analyses - FRD:

PEL; improve

stock-specific

assessment

models -

MARAM.

b Anchovy 3,14 Moderate 5

Relationship between SST gradient

and anchovy relative biomass

distribution still holds with updated

data; transboundary issues not

considered important; habitat

characterisation examined by Dawit

and Nandi (BCC project)

Publish paper (NansClim

suite)

FRD: PEL

c Redeye 16,17,18,

19 Moderate 3

Full distributional area of redeye not

surveyed (particularly north of

Hondeklip Bay; offshore of continental

shelf) but this seen as low priority;

habitat characterisation examined by

Dawit and Nandi (BCC project); likely

transboundary distribution but no

issues at present as Namibia does not

harvest redeye

Publish paper (NansClim

Suite)

FRD: PEL

1.5 The stock identity and/or genetics is well understood

a Sardine 2,11 Moderate 5

Consolidation of biological data

(including genetics; preliminary results

do not suggest genotypic stocks)

pertinent to multiple stocks;

hypothesis of phenotypic stocks;

complementary incorporation of

multiple stocks in operating models;

development of stock-specific

assessment models

Update stock-specific

assessment models; possibly

incorporate into operating

models; spatial management

in OMP-13; analyse genetic

and otolith morphology data

MARAM;

UCT/DAFF (S

Hampton PhD)

b Anchovy 2 Moderate 4

Genetic and otolith morphometric

studies conducted for stock

discrimination but not yet analysed

Analyse data UCT/DAFF (S

Hampton PhD)

c Redeye 16,17,19 Moderate 4

Genetic and otolith morphometric

studies conducted for stock

discrimination but not yet analysed

Analyse data UCT/DAFF (S

Hampton PhD)

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 species or vulnerable species have been quantified

a Horse mackerel 21,22 High 5

Horse mackerel bycatch task team

formed and data analysed;

assessment updated; adaptive

management strategy adopted by

industry

Develop combined survey

methodology (acoustic and

demersal) to estimate bias in

demersal trawl horse

mackerel biomass estimates;

use yield per recruit analysis

for sensitivity testing on

horse mackerel assessment

Survey - DAFF

(SWG-Dem and

SWG-Pel);

MARAM

b Linefish 24 Moderate 3

Mossel Bay closed area task team

formed to investigate closure possibly

due to conflict with line-fishery (kob);

limited data on linefish catches by

purse-seine vessels so difficult to

assess this issue

MoBCATT to meet and make

recommendations

FRD: PEL

c Chokka 26 Low 5

No research conducted or considered;

likely to be localized problem (sardine

fishery off Cape St Francis)

If chokka bycatch becomes

problematic initiate research

FRD: PEL

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 Lantern fish &

Light fish 20 Low 5

Experimental pelagic trawl fishery

targeting mesopelagic fish; catch data

available; biomass estimated during

surveys; PUCL of 50 000t for

mesopelagic fish introduced. The

priority of this should increase as

mesopelagic fish are now being

targeted by the experimental trawl

fishery. EAF working group has

recommended that the understanding

of the role of mesopelagic fish in the

ecosystem be expanded.

Continue monitoring and

data collection. Improve

understanding of the role of

mesopelagic fish in the

ecosystem.

FRD: PEL

b Chub mackerel 23 Low 5

Catch data available; biomass

estimated during surveys and

biological data collected during

surveys collated by CM TT; this species

not considered an issue but may be

important off east coast (recent

dolphin feeding studies by S Ambrose

RU show chub mackerel currently

more important than sardine)

Continue monitoring and

data collection

FRD: PEL

c Jellyfish 28 Low 4

Developing methods for acoustic

estimation of jellyfish biomass (TS,

etc; Nandi PhD); catch data

considered un-reliable and not

analysed

Acoustically-derived

estimates of jellyfish

biomass

FRD: PEL

d Gobies 29 Low 7 No research conducted or considered If goby bycatch becomes

problematic initiate research

FRD: PEL

e Seals 30 Low 5

Seal mortalities in experimental

pelagic trawl fishery recorded by

observers; seal surveys continuing

(DEA)

Continue monitoring seal

mortality in experimental

pelagic trawl fishery

FRD: PEL; DEA

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.

Low 5

Overlap between seabird (gannets,

penguins and cormorants) foraging

areas and pelagic fish catches and

distributions examined; Island Closure

Task team experiment; overlap

between purse-seine fishing and

ecologically-sensitive areas assessed

as part of SANBI OMPA process;

MoBCATT to investigate effects on

linefish nursery area

Continue ICTT experiment;

MoBCATT to meet and make

recommendations

ICTT; MoBCATT

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 5

Mostly good understanding of seabird

diet and foraging behaviour but

limited understanding of other

predators; continuous monitoring of

seabirds on islands; development of

functional relationship between

penguins and sardine biomass WoCA;

assess impacts of closed areas on

penguin demographics; some analyses

of mortality attributable to predation

by Cape gannets conducted (Crawford

presentation July 12)

Understand penguin diet

sampling bias through

experiments on captive birds

at SANCCOB; continue

analysis of relationships

between pelagic fish and

penguin demographics;

continue gannet analysis;

initiate diet studies of other

dependent predators

(especially hake); use stable

isotope mixing models to

estimate hake diet

composition and role of

small pelagicspecies therein;

improve dietary data for

other predators

Penguin diet

bias and

relationships –

Cape Nature;

gannet analysis

- DEA; hake diet

- FRD: PEL/DEM

and UCT

1.10

There is good

understanding of

the diet and role

of small pelagic

species in the

trophic web.

31,34 Moderate 4.5

Anchovy and sardine diet relatively

well understood, some progress on

redeye diet (Mketsu MSc); new

studies on horse mackerel diet (Y

Mdazuka); collection of substantial

amount of stable isotope data to

elucidate pelagic foodweb structure

and pathways

Update hake diet analysis

(1995-present); validate

ECOPATH trophic models

with SI data and quantify

trophic overlaps between

small pelagic fish species;

update and recalibrate

ECOSIM and OSMOSE

trophic models

Hake diet -

FRD: DEM;

ECOPATH

validations and

trophic overlap

- UCT & FRD;

PEL; update

ECOSIM and

OSMOSE - UCT

1.11

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 5

Some work on gannet feeding on

small pelagic and alternatively hake

offal (Kew Tai et al submitted)

Expand analysis of offal-

feeding by other predators

of small pelagic fish,

especially seals, cetaceans,

sharks, linefish etc

DEA/DAFF:FRD

1.12

There is a good

understanding of

gear loss and/or

ghost fishing

including

entanglement.

43 Low 6

Little, if any, gear loss in pelagic

fishery so not considered a serious

issue; no research done or planned

None N/A

1.13

Disease related

risks (e.g. from

imported fish

products like bait)

are well

understood.

10 High 5

Initial risk assessment done and local

sardine tested for presence of PHV

pathogen. Fuller risk assessment

required

Expand risk assessment and

consider and develop

appropriate management

response

DAFF

Objective 2:

Ecosystem

impacts of

fisheries are

included into

management

advice

Issues Priority Step Comments (incl 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)

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

implemented

a Sardine 1,6,12 High 4.5

Progress has being made on looking at

a two-stock hypothesis which takes

into account various life history,

morphological and other parameters

Objectives for evaluating spatial

distribution have been formulated

The current OMP runs on a one stock

model, which defaults to west coast

parameters and all available life

history data are included. Abundance

estimates from surveys are key annual

inputs to the OMP formulae used to

determine TAC recommendations.

Time-invariant juvenile and adult

natural mortality will be assumed but

robustness tests for varying natural

mortality have been included in the

OMP testing. Further progress

requires better ageing data

Lack of ageing data is a

serious issue for the OMP

models, more age readers

should be appointed as a

priority.

Incorporate the two- stock

model into the OMP.

Annual biomass surveys will

continue.

FRD: PEL

b Anchovy 1, 15 Moderate 5

All available 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

Continue annual surveys.

Ageing data required to get

better estimates of natural

mortality are required.

FRD: PEL

Time-invariant juvenile and adult

natural mortality will be assumed but

robustness tests for varying natural

mortality have been included in the

OMP testing. Further progress

requires better ageing data

c Redeye 19 Moderate 4

There is a PUCL which does not take

into account life history parameters

Age data are being collected and

assessment models are presently

being developed to take into account

life history parameters

Continue to work on

assessment models in order

to eventually set a TAC.

Small pelagic

SWG & FRD:

PEL

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

a Sardine 2,3,5 High 5

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 13 years.

Some management interventions to

reduce instances of dumping have

been introduced (“Bolyn” alongside

quay; within-season quota transfers;

10% observer coverage will be

required).

Observer contract ended and has not

yet been replaced, which resulted in

no data being collected on dumping.

Incorporate results of 2-

stock hypothesis work into

OMP/setting of TAC and

TAB.

Implement observer

contract.

MRM: PHSFM,

Observer

contract - FRD

and Finance

b Anchovy 2,3 Moderate 5

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 13 years.

Some management interventions to

reduce instances of dumping have

been introduced (“Bolyn” alongside

quay; within season quota transfer;

10% observer coverage will be

required).

Observer contract ended and has not

yet been replaced, which resulted in

no data being collected on possible

dumping

Maintain current practice for

setting TAC and sardine TAB.

Incorporate spatial aspects

in setting sardine TAB if

model results justify.

Implement observer

contract.

MRM: PHSFM,

Observer

contract - FRD

and Finance

c Redeye 16,17,19 Moderate 4.5

To date only a PUCL of 100 000 t has

applied but has never been reached.

Current studies are underway will

advise on the need to change

management advice.

Some management interventions to

reduce instances of dumping have

been introduced (“Bolyn” alongside

quay).

Red eye stock assessment and

Possible revision of

management approach

following assessment.

Determine adult sardine

TAB.

Continue work on red eye

stock assessment.

MRM: PHSFM,

Red eye stock

assessment -

FRD: PEL

management has been identified as a

priority, preliminary work has been

started.

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

a Sardine 7,8,9 High 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. The most

important input into setting the TAC is

the fish abundance as based on the

acoustic survey, which is independent

of discarding.

Maintain current practice

FRD: PEL &

Small Pelagic

SWG

b Anchovy 13 Low 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. The most

important input into setting the TAC is

the fish abundance as based on the

acoustic survey, which is independent

of discarding.

Maintain current practice FRD: PEL &

Small Pelagic

SWG

c Redeye 16,17,19 Moderate 4

Red eye stock assessment and

management has been identified as a

priority, preliminary work has been

started

Continue work on red eye

stock assessment

FRD: PEL &

Small Pelagic

SWG

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

a Sardine 3,4 High 4 OMP-13 is being developed and may

incorporate a two-stock model.

Implement OMP-13 MRM: PHSFM

& FRD: PEL

b Anchovy 3,14 Moderate 6 The resource is managed as single

stock.

Maintain current approach MRM: PHSFM

c Redeye 16,17,19 Moderate 6

The resource is managed as single

stock.

Maintain current approach.

Stock assessment to happen

in 2013.

MRM: PHSFM

2.5 The stock identity

and/or genetics is

incorporated into

stock assessment

models or other

management

advise

a Sardine 2,11 Moderate 4

Multidisciplinary approach has been

taken to identify stocks (spawning

habitats, meristic characters,

morphometric characters, length-at-

maturity, parasites and genetics).

Preliminary results suggests there are

2 stocks

This work needs to be

expanded to increase sample

sizes

FRD: PEL &

Pelagic SWG

b Anchovy 2 Moderate 4 Resource is managed as single stock. Maintain current approach MRM: PHSFM

c Redeye 16,17,19 Moderate 4

Resource is managed as single stock.

Maintain current approach MRM: PHSFM

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)

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

stakeholders.

a Horse mackerel 21,22 High 5

PUCL in place, catches are monitored

by industry and areas closed for seven

days by grid block when horse

mackerel catches exceed 40% of

catch.

Horse mackerel survey has improved

estimates.

Area controllers in place and all fish

must be offloaded in the presence of a

monitor.

Implement new PUCL (now

calculated differently by

taking into account catches

in the previous years).

Assess bias in estimates.

FRD: PEL,

MRM: PHSFM

& EAF/SPSWG

b Linefish 24 Moderate 6

Not allowed to target, but all catches

must be declared and forfeited to

DAFF. Adequately addressed in permit

conditions. Snoek bycatch needs to be

addressed.

Maintain current practice. FRD: PEL,

MRM: PHSFM

& EAF/SPSWG

c Chokka 26 Low 7

Not allowed to target, but all catches

must be declared. Permit conditions

adequately cover chokka.

Maintain current practice.

Assess extent of chokka

bycatch by pelagic vessels.

FRD: PEL,

MRM: PHSFM

& EAF/SPSWG

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

a Lantern fish& Light

fish 20 Low 4.5

An experimental mid-water trawl

permit issued to target red eye and

anchovy but also catch lantern fish

and light fish.

There is a PUCL in place for lantern

fish

Small bycatch, populations estimated

to be large

Continue monitoring catches FRD: PEL

b Chub mackerel 23 Low 5

Very little bycatch

7 day grid closure regulation in place

Area controllers in place and all fish

must be offloaded in the presence of a

monitor

Continue monitoring catches FRD: PEL

c Jellyfish 28 Low not

priority

The group did not consider this a

sufficient priority to require a new

management response. Catches are

monitored

Continue monitoring catches FRD: PEL

d Gobies 29 Low not

priority

The group did not consider this a

priority to require a new management

response. Catches are monitored

Continue monitoring catches FRD: PEL

e Seals 30 Low 4.5

Appropriate monitoring is in place.

Seals and Seabirds Act protects seals

and no seals have been caught during

this reporting period. Enforcement of

seal protection is a challenge. Permit

conditions prohibits the killing of seals

Maintain current practice Onboard

observers &

MCS: FPV

General Ecosystem considerations

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.

5

The fishing practice will not have an

impact on the pelagic habitat or the

sea floor.

There are closed areas for the

protection other species (Mossel Bay,

False Bay, 16 Mile Beach MPA, Walker

Bay etc). Feasibility study underway

for closed areas around penguin

islands.

Await outcomes of feasibility

study. Recommendations

from the Offshore Marine

Protected Areas need to be

implemented.

Small Pelagic

SWG/RMWG

and EAF SWG

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.

31,32,33 Extreme 5

Much work has been done on African

penguins. The island closure feasibility

study is underway, penguin pressure

population models are being

developed and Will Robinson's

penguin model will be linked to the

OMP.

Objectives for OMP evaluation in

terms of both one and two stocks

have been formulated.

Finalise incorporation of

penguin model in OMP-13

(base case model completed,

sensitivities pending)

Await outcomes of feasibility

study (2014/2015)- Power

analyses to be updated by

ICTT

Investigate the effects of the

small pelagic fishery on

other fisheries (eg hake) as

some are undergoing stock-

building programmes and

this should be taken in to

account. Avoid an

unacceptable fishery

induced impact on top

predators (predatory fish,

other seabirds, cetaceans

etc).

Small Pelagic

SWG/RMWG

and EAF

SWG/research

institutions/NG

Os

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 2

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.

Small Pelagic

SWG/RMWG

and EAF SWG

2.12

Fisheries

operations have

been amended to

mitigate the

impacts of diet

supplementation

of top predators.

35,37 Moderate 1

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.

Small Pelagic

SWG/RMWG

and EAF SWG

2.13

The impact of gear

loss and/or ghost

fishing including

entanglement are

included in

management

procedures

Group did not consider this a

sufficient priority to require a

management response

No action required Small Pelagic

SWG/RMWG

and EAF SWG

2.14

Disease related

risks (e.g. from

imported fish

products like bait)

are addressed by

management.

10 High 4

A study has been done to investigate

whether the South African population

is susceptible to the Pilchard Herpes

virus and a Pilchard Herpes virus Task

Team has been formed

Appropriate mitigation

actions to be identified.

Small Pelagic

SWG/EAF SWG

2.15

Monitoring of

discards of

pollutants (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

Land-based pollution sources have

been addressed.

Continue WWF Responsible

Fisheries training

Industry/

Responsible

Fisheries

Alliance/ WWF

Objective 3:

The social

wellbeing of

dependent fishing

communities is

accounted for in

management

advice

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

3.1

DAFF, 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).

46,47,48,

49,52,55,5

6,57,61

Extreme 1.5

Need for anchovy for human

consumption and job creation -

plan/policy in place but no

implementation. Plans are geared

more towards agriculture and not to

fisheries. Small-scale fishery policy is

finalised but not implemented.

Use the agriculture

plans/policy already in place

as a means for creating

strategy for fisheries.

Industry needs to invest in

communities but do need to

ensure economic viability of

(eg) anchovy. Shift from

conservation to

development orientation

(although not to forgo

conservation). Plan and

phase the Implementation of

the SSFP within the fishery

and further investigate the

feasibility for anchovy for

human consumption.

MRM: ES and

PHSFM

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.

46,47,57,6

1 Moderate 1.5

Small scale fisheries policy attempts to

address poverty alleviation, but the

implementation plan has not been

developed yet and therefore it is

unknown how this will affect the small

pelagic fishery. A task team has been

set up to investigate anchovy for

human consumption which could

address issues of poverty alleviation.

Pre-discussions in place for poverty

alleviation. Plans in place for these

issues within DAFF but not for

fisheries specifically.

Fisheries management plan

addressing poverty

alleviation, education, etc

needs to be created and

implemented.

MRM: ES and

PHSFM

3.3

Social implications

related to the

fishery are

included in

Integrated/Local

Development

Plans.

45,47,49,5

1,55,56,57

,58,60,61

Extreme 2.5

Recognition that social implications

need to be included, but little

implementation thus far.

Environmental legislation limits

currently limits production, which

impacts upon the quality of jobs

creatd. National vs. local interests may

be different. MOUs for various

organisations.

Create policies dealing

specifically with social

aspects (seasonal work) and

implement these. Need to

have more co-operation

between local and national -

cross-scale work needs to

happen (e.g. between Cape

Nature and DAFF).

MRM: ES and

PHSFM

3.4

DAFF has

sufficient capacity

to address

gazetted social

priorities (e.g.

poverty

alleviation, job

creation, food

security, primary

education, health

care).

45,52,54,5

7,58,60,61 Extreme 1.5

No social scientists (only a few

economists) to deal with social issues.

There is intention to use field officers

in assisting rights holders to develop

businesses.

Need to employ social

scientists. Need to build links

between departments.

Fisheries department needs

to understand social issues

and develop a method for

incorporating these issues

into management (could

investigate incorporating

into the development of the

OMP).

Fisheries: SMS

& HRM

3.5

Transdisciplinary

collaborations on

issues of poverty

alleviation, basic

education and

primary health

care between

DAFF and other

line ministries

(e.g. Ministry of

Education, Health

etc) & NGOs are

established.

52,57 Moderate 3

Industry deals with many of these

issues, where DAFF does not do so

sufficiently - needs to be work

undertaken between industry and

government departments.

Need to involve more

stakeholders. Task teams to

address issues (from a

transdisciplinary

perspective). IDPs need to be

involved in fishing

communities. More

involvement of local

government.

Communication happening

higher up (between

department and government

- local and national) but

need to filter down

communication and

Fisheries: SMS

solutions.

Objective 4:

The wellbeing of

the fishing

industry is

incorporated into

management

advise.

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

4.1

Individual rights

are economically

viable.

47,55,61 Extreme 2

Currently smaller rights holders' rights

are not economically viable but this is

due to the high variability of the

resource. Joint ventures have proven

to be viable. Rights transfer policy

approved

Support joint ventures more.

Collaboration between

industry and government.

Maximise economic returns

for resources fished.

Complete current rights

transfer applications

rights transfers

- MRM: PHSFM

4.2

An appropriate

and fair rights

allocation process

is in place.

63 High 6

Rights allocation process in place

although not necessarily fair (created

a large number of paper quota holders

within the industry). Fisheries

performance review took place albeit

belatedly.

Identify paper quota holders

and issue S28. Next review

to be completed timely and

effectively.

MRM: PHSFM

4.3

Management of

the fishery is

aimed at long-

term financial

stability and

9,54,55,

56,59 Extreme 4

The OMP is aimed at economic

stability by controlling the fluctuations

in the TACs. Aimed at industry, but

small rights holders still included.

Allocated long term rights to

incorporate financial stability in the

Need to work in Joint

Ventures Partnerships to

ensure long-term stability is

achieved, particularly for

small right holders.

MRM:PHSFM

and Industry

security. fishery.

4.4

All rights holders

have adequate

business skills and

marketing skills.

Moderate 5

Estimated that only 60% of right

holders have adequate business skills.

Identify the 40% not at the

required level, investigate

reasons and then assist.

Dept needs to identify the

right people to provide

skills/guidance to those who

need it. DAFF extension

officers should be

considered to assist rights

holders with business skills.

DAFF: MRM

and extension

officers

4.5

All stakeholders

possess adequate

skills to

participate in co-

management.

55 Extreme 6

All stakeholders need an

understanding of co-management. At

present majority are represented by

associations but stakeholders need to

ensure they are being correctly

represented. There has been an

improvement in co-management skills

since the last ERA review.

Continue to improve

communication channels

with various stakeholders.

Identify 20% not at

appropriate level and assist.

MRM: PHSFM

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

Responsible Fisheries Alliance is

running training courses. Course has

been changed to include all sea-going

staff.

Ensure the other 50% get

into the training programme.

Industry/

Responsible

Fisheries

Alliance/ WWF/

MRM: PHSFM

4.7 The fishery is eco-

labeld e.g. MSC Low 1.5

One company (30% of industry

processing) is going through the

process of IFFO-RS certification (fish

meal and oil).

Only one company going

through process. DAFF to

encourage certification of

fish products.

DAFF

4.8

Processes are in

place to ensure

the traceability of

products as

desired by the

export market

(e.g. EU

requirements).

Moderate 7

Processes are in place, fully

implemented. Only for catch

certificates.

no further action required MRM

4.9

The industry has a

strategy to ensure

long-term market

security (e.g.

diversity of

markets/products,

product

branding).

54,57,58,5

9 Extreme 6

As before. Currently investigating

anchovy for human consumption.

Should continue to look at

diversification of markets

and branding. Continue

investigations into anchovy

for human consumption.

Industry and

DAFF: MRM:

PHSFM

4.10

There is a clear

understanding of

the national

economic context

of the fishery.

9,59 Low 1.5

Second most valuable fishery in South

Africa. Employment created by this

fishery is known. Insufficient

knowledge of the social aspecs and

economics of the fishery.

Gain a better understanding

of the economic context.

SMS

4.11

Economic

implications of

management

decisions are

clearly integrated

into fisheries

management

advice and

procedures.

59,60,61 Low 6

Still in discussion phase. Allocation of

long term rights aids in economics of

the fishery as well as the OMP which

allows little variability in the TAC.

Current revision of the OMP as well as

previous OMP takes into account

many economic considerations

through co-management which

industry and government.

As previously. Inclusion of

socio-economic into OMP.

MRM:

Economic

Studies and

PHSFM

Objective 5:

The managing

authority has

transparent and

participatory

management

structures that

ensures good

communication

and information

sharing locally and

regionally

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

5.1

Effective and

cohesive industry

associations are in

place and

functioning.

63,67 High 7

Are effective, not necessarily

cohesive.

As previously recommended Industry

Associations

and Right

Holders

5.2

Effective

participatory

management

forums (e.g.

Working Groups)

are functioning.

67,70,73,7

4,79 Extreme 7

The Management Working Group

currently meet twice annually and

there are various task groups. There

are rights holders who do not belong

to associations and therefore are not

represented on working groups.

Maintain current practices.

Department to encourage all

rights holders to be

represented at management

and scientific working groups

and establish why these

rights holders are not

members of associations and

assist where required.

SP RMWG and

SWG

5.3

Working groups

have good

stakeholder

participation (e.g.

fishing industry,

NGO etc).

62,63,72,7

3,79,79 Extreme 7

Excellent communication and

participation of stakeholder

participation in all working groups.

Investigate broadening the

scope of the SWG to include

social scientists

SP RMWG

and/or SWG

and /or Senior

Management

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).

50,70 Moderate 3

Channels are in place at a high

(ministerial/DG) level but are not in

place on an operational level.

Bring specific local

government departments

into discussions.

SMS

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).

64,65,66,

67,69, 74 Moderate 6.5

The Department Executive

Committee, the Branch Executive

Committee and the Senior

Management Service meeting

recommendations and decisions need

to be filtered down adequately and

communicated properly.

Identifying proper channels

to distribute decisions and

recommendations properly.

Continue to improve

communication with

compliance; ensure records

of decision are easily

accessible to stakeholders.

SMS

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).

64,65,66,

67,69,74 Moderate 6.5

Regularly meeting held by Research

and MRM, but not Compliance.

Communication with Compliance

conducted on a ad hoc basis.

Further improve

communication structures

and reporting procedures.

MCS:

Compliance

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

a BCC 53 Negligible 4

Regional co-operation exists through

the Benguela Current Commission.

Find ways to further improve

operational information

sharing across borders.

FRD & MRM &

international

relations.

Objective 6:

Management

plans incorporate

EAF

considerations

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

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

There is still no management plan and

a draft plan for Large Pelagic is being

finalised which will give a template

for the rest of the fishery sectors.

Use Large Pelagic

Management Plan as a

template to develop the

Small Pelagic Management

Plan within the next 18

months

MRM: PHSFM

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

a Seabirds NPOA n/a

b Shark NPOA n/a

c IUU NPOA ? 2

Status quo as per the last ERA review.

Is there a link between NPOA IUU and

the IUU regional plan of action (SADC).

To consider relevance in the

sector and implement

accordingly. Consider the

link and consider using the

regional one as a guide.

DAFF: MRM

and MCS

d Capacity NPOA 52 Moderate 2

NPOA Capacity is on the strategic plan

for the 2012/2013 financial year, but

no progress has been achievd thus far.

Start ground work. DAFF: MRM in

collaboration

with Industry

Objective 7:

Good compliance

to regulations

reduces

ecosystem

impacts of

fisheries

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

7.1

Appropriate

regulatory

mechanisms exist

and adequate

follow-through

provide effective

dis-incentive for

non-compliance.

64,65,66 Moderate 6

A new monitoring contract is in place.

Dumping issues are implemented

through close corporation between

management working groups and sea

management forums, area controllers,

within season transfers, “bolyn”

alongside initiatives, proper bycatch

management plans are already

included in permit conditions. No

observer program but scientific

observer tender to be released soon

and for the sub-season (after

September 1st) 25% coverage is

envisaged. Quota reconciliations

occurs on an annual basis.

To continue improving

current measures in close

corporation with relevant

stakeholders. Proper training

of monitors and observers.

DAFF: MCS,

MRM, Industry

associations

and Sea

Management

Forum

including

Observers.

7.2

Adequate

mechanisms are in

place to support

voluntary

compliance (e.g.

performance

review

procedures, eco-

labelling, etc).

64,65,66 Low 6

International Fish Oil and Fish Meal

Organisation (IFFO) is under approval,

responsible for certifying good

standards via SAPFIA members.

Industry is complying through

voluntary eco-labelling and some

companies are in the process of

getting IFFO approval. Performance

review has been conducted.

Continue current incentives Industry

(SAPFIA)

7.3 All aspects of MCS are functioning well and are leading to good compliance: (issues 64,65,66, 69,77)

a

Regular at sea

patrols are

undertaken

Moderate 1

Patrol vessels have been acquired and

sea patrols were undertaken regularly.

Currently no patrols have been

undertaken since vessels have been

transferred to the Navy to manage.

MCS absence in this ERA workshop is

once again noted.

Regular patrols to be

undertaken

MCS: FPV

b

Adequate shore

based controls are

in place (e.g. in

harbours, at

Moderate 7

Biological data remain absent from

Gaansbaai, however, 100% monitoring

of landings takes place.

Continue 100% land-based

monitoring by service

provider but ensure

representation of scientific

staff for proper biological

MCS:

Compliance

and Monitoring

Service

landing sites etc.) data to be collected. Provider

c

The special

investigation unit

(SIU) functions

well

Moderate 2

SIU appears to be more active in

combating abalone poaching, and

there is uncertainty as to its

involvement in other fishing sectors.

Ensure that SIU members are

also invited as part of MCS

participation at all

Management Working

Groups.

Small Pelagic

Management

Working Group

d

Functional VMS

system

implemented

Moderate 4

100% coverage of VMSs on all vessels.

During the week VMS reporting is fine,

however, there is no communication

after working hour and during

weekends. OPS room is not manned

after hours, during public holidays and

over weekends. Industry cannot verify

functionality of the equipment as per

permit conditions.

Ensure 24/7 manning of OPS.

Introduction of SMS

correspondence for industry

to verify functionality of the

VMS. Improve accessibility of

VMS data to scientists.

DAFF: OPS

Room

e

Legal system

adequately

apprehends

offenders

Moderate 3

The legal system does not adequately

apprehend offenders. Section 28

Committee is in place but not fully

functional. The Committee takes too

long to get started with investigations.

Ensure that the Committee is

fully functional, meets

frequently and provides

quick feedback to clients and

officials drafting

submissions. The “green

courts” should be re-

Fisheries: DDG

& Chair of the

Section 28

Committee. A

final decision to

be taken by

Fisheries Legal

instated. Adequate training

of national prosecutors is

necessary.

Support

Directorate.

f

Regular aerial

patrols are

undertaken

1

Status quo remains Improve co-operation and

communication between

DAFF and Navy.

MCS

Objective 8:

Sufficient

capacity, skills,

equipment and

funding exist to

support the

implementation

of an EAF

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

8.1

Good research

capacity is

available to

adequately

understand EAF in

this sector.

70 High 1.5

EAF remains a priority yet DAFF has

still not implemented the necessary

structures to support EAF. Additional

capacity needs to be addressed as

recommended in the previous ERA.

The previous EAF Scientific Working

Group Chair documented the capacity

needs to senior management.

DAFF to put the proper

structure in place. EAF

Scientific Working Group to

prioritise projects. New

posts need to be created for

EAF expects.

DAFF: SMS

members

8.2

The skills

development

mechanisms (e.g.

training courses

etc.) are adequate

to allow EAF

related research.

70 High 3

There is no EAF social aspects research

capacity within DAFF. Some courses in

place (SWIOFP/BCC EAF course

attended by two fisheries managers at

Rhodes University in 2011) but not

adequate to address all EAF needs

within DAFF (DAFF lost EAF expertise).

There are some courses in place

including the EAF and decision

modules at UCT and Rhodes.

Skills development must be

in place to allow EAF

research. Promote capacity

building via DAFF Research,

e.g. attendance of courses

offered by tertiary

institutions via staff

development plans.

Strengthen collaboration

with tertiary institutions to

DAFF

promote skills development.

8.3

The funding to

facilitate

adequate

capacity,

equipment and

skills for research

are understood

and met.

70 High 2

Funding needs are understood but

generally not met.

obtain funding for priority

EAF research

DAFF

8.4

Fisheries has

adequate capacity

to advise fisheries

management

decisions.

70 High 1.5

The need for additional capacity to

better understand social and

economic aspects of EAF within the

fishery. DAFF currently depends on

external stakeholders’ advice. Apart

from EAF expertise there are more

capacity required relating to

modelling etc.

There is a dire need for extra

capacity.

DAFF: SMS

members

8.5

Fisheries 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

DAFF sent staff on an EAF Course but

more staff need to capacitated. There

is a lot of work conducted outside of

DAFF and the intensity since the split

between DAFF and DEA on EAF

matters declined, perhaps due to lack

of communication. Lack of leadership,

i.e. acting positions at senior level

might have added to the

communication problem.

EAF considerations need to

be prioritised as a matter of

urgency and better co-

operation between DAFF

and DEA is required

DAFF and DEA

8.6

Fisheries has

funding to

facilitate

adequate

capacity,

equipment and

skills for

implementing

management

decisions.

70 High 1.5

Still no adequate funding to address

EAF capacity needs.

Funding needs must be

specified.

DAFF: FRD

8.7

There is adequate

capacity to

address

compliance issues.

65,66 Moderate 2

Sea-based: Inadequate due to vessels

not being deployed at sea. Under

temporary management of the SA

Navy. Land-based: adequate capacity

exists. SIU is one dimensional, i.e.

abalone poaching only

(understaffed?).

Compliance staff were not

represented at the meeting.

Vessels to operate at all

times and seek more

suitable management

thereof. SIU to spread their

focus or increase staff

capacity as needed.

DAFF: MCS

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

MCS management has embarked on

internal workshops/in-house training

with the objective to improve

professionalism in compiling first

information of crime (FIC) statements;

handling and maintaining of Fine/Case

registers. In May 2012 MCS hosted a

fisheries enforcement workshop with

relevant stakeholders (Justice,

Prosecution, SAPS and other several

laws enforcement agencies) in

Mthatha; amongst other things the

objectives of the workshop included:

improving fisheries awareness,

knowledge and understanding; and

the consequences of illegal fishing

practices; which in turn will enhance

cooperation among stakeholders and

success to fight IUU fishing in SA.

A training programme

identifying the necessary

training for skills and

capacity building

interventions has been

approved by CD: MCS.

Based on the skills to be

addressed the programme

will be implemented over 5

years, amongst the

interventions identified are

Enforcement of the MLRA

and its regulations, Peace

Officer's Course, Conducting

Forensic Investigations. The

training will commence in

October 2012. In

recognition of required

training another DAFF:

Fisheries stakeholder

consultation workshop will

be held in Grahamstown in

October 2012. Stakeholders

include Justice, Prosecutions,

SAPS and other law

enforcement agencies.

DAFF: MCS

8.9

There is adequate

funding to

facilitate capacity,

equipment and

skills for

compliance.

65,66 Extreme 3

In realisation of limited capacity and

or resources, MCS has maximised joint

operations with other law

enforcement agencies. In the past

MCS received funding from the SADC

- EU MCS training programme which

currently is no longer available.

More funding is required:

The scarcity of accredited

services providers to address

specific training

requirements of MCS as well

as compliance with stringent

departmental procurement

procedures further creates

challenges to address

training needs.

DAFF:MCS

8.10

Employment

equity within

Fisheries

according to

transformation

goals has been

achieved.

Moderate 6

Transformation goals within Fisheries

Management have largely been met.

Maintain employment equity

of the Branch.

DAFF: HRM

Objective 9:

Good data

procedures exist

to support EAF

implementation

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

9.1

Both land-based

and at sea

observer

programme is

operational and

provides accurate

information to

inform the

management of

the sector.

69,76 Moderate 1

Land-based observers are operational.

Scale monitors active at all off-loading

stations.

The at-sea observer contract was

terminated and has not been

replaced.

Funding for the at sea

observer programme is

available and a tendering

process will start in the near

future

Enhance training, implement

efficient data quality control

procedures, check data

quality from individual

observers, improve data

accessibility

at sea observer

programme -

FRD; land-

based

monitoring

contract - MCS;

training of

land-based

monitors -

MRM

9.2

Accurate logbook

information

informs research

and management

of the sector.

69,76 Moderate 6

There is a system in place to collate

logbook data, but feedback is limited

between DAFF 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 are not readily available

Improve data access.

Continue WWF training.

Industry; FRD;

MRM

9.3

Accurate Landing

declaration

information

informs the

management of

the sector.

69,76 Moderate 6

Although monitors are susceptible to

corruption and landing data are not

always accurate there has been great

improvement in recent years due to

Industry required to used Type

Approved scales and monitors have

been trained on sampling procedures.

Continue WWF training;

ensure the data

management system is able

to pick up data anomalies.

MCS/Monitors/

MRM

9.4

Appropriate

electronic data

management

systems are in

place (research

and catch data).

69,76,77 Moderate 3.5

A central data management approach

is under development. However, there

is a need for a central data manager.

Catch data are good but a shortfall is

that environmental data cannot be

linked. Recording actual location

(lattitude and longitude) of each

throw now required of skippers, which

will enable such linkage.

Centralise data and employ a

data manager; investigate

how to link environmental

data to the catch data and

incorporated in the new data

management system.

FRD

9.5

Data management

systems for socio-

economic data are

in place and are

being used.

47,55,56, Extreme 1

There is currently no data

management system for socio-

economic data.

Socio-economic data are not being

collected

Some information will be

collated during the fishery

performance review.

Establish data needs for

socioeconomic research

under objective 3.

Investigate what the

Department has in place and

develop a data management

MRM:

Economic

Studies and ICT

system to meet Fisheries

objectives.

9.6

Electronic data

management

systems

(operational data)

are in place.

67,69 Moderate 6

VMS data is difficult to access MCS must investigate a

programme that is user-

friendly, i.e. Information is

accessible immediately and

in an appropriate medium

and Fisheries to continue to

improve all data

management systems.

VMS - MCS;

Improve data

management -

Fisheries

Objective 10:

External impacts

of fisheries are

addressed (e.g.

the effect of other

sectors, other

industries, climate

change etc)

Issues Priority Step Comments (incl details of progress,

barriers etc)

Next steps (to be

undertaken within the next

18 months)

Responsibility

10.1

There is good

understanding of

the effect of other

fisheries on this

fishery and vice

versa or within

the fishery

70 Moderate 5

Impacts of this fishery on other

fisheries partly understood, e.g. Horse

Mackerel Bycatch Task Group

between small pelagic and mid-water

trawl fisheries. Mid-water Trawl

experimental fishery has been

implemented to test alternative

fishing methods for catching small

pelagic fish. The effects of the

experiment on other fisheries is

currently being researched by internal

(Scientific Working Group) and

external (UCT) groups.

Continue the Horse

Mackerel Task Group and

document findings of the

experiment. Determine

adequate funding for

external research. Improve

communication and

collaboration between the

various SWGs to enable good

understanding of the effects

of other fisheries. Continue

to collect data from the

experimental live bait fishery

to assess impact.

DAFF: FRD

10.2

There is a good

understanding of

the effect of

external

ecological &

climate changes

on this fishery

82,81 Extreme 4.5

Several publications recently at UCT.

More studies still ongoing but there

are still unanswered questions. Good

progress with evaluation risks of

herpes virus in small pelagic fish. Good

progress has been made by tertiary

institutions.

Consider management

advice. Maintain close

relationship with UCT to

access and share data and

knowledge coming out of

this research.

Small Pelagic

and EAF

Working

Groups

10.3

There is a good

understanding of

the effect of other

industries on this

fishery

83 Low 1.5

Still poorly understood, yet the risk is

no longer low due to frequent

requests received regarding Mining

(eg phosphate).

Establish task group to

advise accordingly, i.e.

Research, SWG to take note

DAFF:FRD

10.4

There is a good

understanding of

economic drivers

(e.g. oil price,

exchange rates

etc.) on this

fishery

88,89,90,9

1 Extreme 4.5

There is still a good understanding of

economic drivers from an Industry's

perspective. From the Department's

point of view, staff capacity is an issue

as there is currently only two

economist specialists who have to

deal economic issues for all 22

commercial fishing sectors within the

Branch: Fisheries Management.

Therefore, staff capacity needs to be

considered. Economic studies indicate

that a good understanding of the

economic drivers do exist within the

Department for the Small Pelagic

Communication and co-

ordination within DAFF and

between DAFF and the

Industry needs to be

improved. Capacity within

the economic section needs

to be increased and

economic data should be

monitored regularly and

made readily available.

DAFF: MRM,

Socio-Economic

Development

(Economic

Studies),

International

Trade and

Relations;

Industry

fishery but there is a room for

improvement. However,

communication between economists

and fisheries managers is not

adequate, therefore managers might

be not as up to date as the economists

with regards to economic drivers. A

MoU between DAFF and International

Trade Administartion Commission of

South Africa (Economists were not

involved) has been approved, thus an

improvement in this regard has been

made on the Department side. The

economic climate, e.g. recent

recession currently adds to the

current uncertainty re economic

drivers.

10.5

There is a good

understanding of

the effect of social

factors (e.g.

HIV/Aids) on this

fishery.

85,86,87 Extreme 1.5

Social factors are an important issue

for the Industry, therefore there are

some programs in place to address the

matter, e.g. Sport events, health

programs, clinics within some fish

processing factories, anonymous

helpline programs, wellness programs

(e.g. Kahello) and follow -ps etc.

HIV/Aids included in some of the

aforementioned programs.

Industry to continue current

programs. Intra-

governmental co-ordination,

i.e. DAFF, Department of

Health and the Department

of Social Development to co-

operate and determine

social factors/needs to

ensure better understanding

of the social needs and

factors. As in one of the

earlier objectives under

human dimensions, there is

a need for social scientists to

contribute. This would

automatically help intra-

governmental co-ordination.

DAFF, Dept of

Health and

Social

Development,

Industry

Abbreviations

DAFF Department of Agriculture Forestry and Fisheries

DEA Department of Environmental Affairs

EAF Ecosystem Approach to fisheries

ES Economic Studies

FPV Fisheries Protection Vessels

FRD Fisheries Research and Development

FRD: Dem Fisheries Research and Development: Demersal

FRD:PEL Fisheries Research and Development: Pelagic

HRM Human Resource Management

ICT Information Communication and Technology

MARAM MArine Resource Assessment and Management group

MCS Monitoring Control and Surveillance

MRM Marine Resource Management

NGO Non-Governmental Organisation

PHSFM Pelagic and High Seas Fisheries Management

RMWG Resource Management Working Group

SAPFIA South African Pelagic Fishing Industry Association

SMS Senior Management Service

SWG Scientific Working Group

UCT University of Cape Town

VMS Vessel Monitoring System

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Marine Policy 34: 276 – 292.

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Annex 1: List of participants

Name

Alice Johnson

Arnold Weitz

Astrid Jarre

Awie Badenhorst

Cameron Scott

Carl van der Lingen

Christina Moseley

Craig Smith (Facilitator)

Emily McGregor

Fannie Shabangi

Jacques van Zyl

Janet Coetzee

Jan van der Westhuizen

Jen Rogerson

Johan de Goede

Lauren Waller

Lynne Shannon

Kate Watermeyer

Kevern Cochrane

Mafaniso Hara

Marthin Potgieter

Myalezo Mato

Mthunzi Mhlakane

Pheobius Mullins

Pierre de Villiers

Institute/Affiliation

WWF

PLI

UCT

SAPFIA

Azanian Fishing

DAFF: FRD

Birdlife SA

DAFF: MRM

UCT

DAFF: FRD

DAFF: MRM

DAFF: FRD

DAFF: FRD

UCT

DAFF: MRM

Cape Nature

UCT

UCT

RU

UWC: PLAAS

Oceana Brands Ltd

DAFF: IIR

FAWU

DAFF: MRM

Cape Nature

Sobahle Somhlaba

Sven Ragaller

Tandiwe Siyema

Thabelo Makherana

Tony van Boom

William Louis

Yonela Geya

Zukiswa Nkhereanye

DAFF: FRD

UCT

DAFF: MRM

DAFF: MRM

Oceana Brands Ltd

Azanian Fishing

DAFF: FRD

DAFF: IIR