Booming illegal abalone fishery in Hangberg: Tough lessons for small-scale fisheries governance in South Africa

Abstract

Marine capture fisheries around the world are widely perceived to be in a state of crisis, with growing recognition that conventional resource-centred management strategies are insufficient to counter ongoing problems of overexploitation. This is considered particularly true in the small‐scale sector, which employs the overwhelming majority of the world’s fishers but has historically been overlooked. To manage marine resources more sustainably, new approaches to fisheries governance have been sought that recognise the complex nature of fisheries systems, paying attention to the social dimensions of fisheries management in addition to important ecological processes. In South Africa, many of these new approaches have been embraced in a recently adopted policy for the small-scale sector. Attempts to reform marine fisheries have been ongoing in the country since the end of apartheid (a system of legalised racial segregation and white supremacy that ruled for almost 50 years) but have largely failed to bring meaningful change to impoverished fishing communities. Frustration at ineffective reform has contributed to widespread non-compliance – most notably in the abalone fishery, which has collapsed in the face of rampant poaching, driven by a lucrative, illegal export market to the Far East. Although the new small-scale fisheries (SSF) policy has been hailed as a progressive shift in thinking, questions remain about how it is to be implemented. One major challenge will be dealing with illegal fishing. The purpose of this study, was to profile the human dimensions of abalone poaching in the Cape Town fishing community of Hangberg and to draw lessons for implementing the new SSF policy. A qualitative multi-method research approach, based mainly on unstructured interviews and participant observation, was used to access the clandestine fishery and investigate its historical development, current structure, scale and methods of operation and main socio-economic drivers and impacts. It was found that abalone poaching has become deeply embedded in Hangberg, having evolved into a highly organized boat-based fishery in a period of less than 15 years. At least five local poaching groups – representing some 250 individuals in total – currently used dedicated high-powered vessels to access reefs around the Cape Peninsula. Profits earned from poaching are substantial but vary, with poachers operating according to a loose hierarchy and performing a range of different tasks in the fishery. This variation notwithstanding, the illegal fishery appears to have become a mainstay of the impoverished local economy, funding poachers’ expensive lifestyles, in addition to contributing more meaningfully to the livelihoods of an estimated 1000 residents.