Guidelines for offshore Marine protected areas in South Africa

2008·1.3 MB·English

by  Sink, Kerry & Attwood, Colin

^Guidelines
^
i
for ,1
Offshore Marine Protected Areas
South
Africa
&
Kerry Sink Colin Attwood
SANBI
Biodiversity Series
9

SANBI Biodiversity Series 9
Guidelines for
Offshore Marine
Protected Areas
in South Africa
SOUTH AFRICA W
BIODIVERSiTY
ftivalsibayX | Pr.-V‘~
Kerry Sink
04 JUN n
Colin Attwood rOv^mtsn^x101prp
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national
biodiversity
institute
SANBI
Pretoria
2008
SANBI Biodiversity Series
The South African National Biodiversity Institute (SANBI) was established on 1 Sep-
tember 2004 through the signing into force ofthe National Environmental Manage-
ment: BiodiversityAct (NEMBA) No.10 of 2004 by PresidentThabo Mbeki. The Act
expands the mandate ofthe former National Botanical Institute to include respon-
sibilities relating to the full diversity of South Africa's fauna and flora, and builds on
the internationally respected programmes in conservation, research, education and
visitor services developed bythe National Botanical Institute and its predecessors
overthe pastcentury.
The vision of SANBI is to be the leading institution in biodiversity science in Africa,
facilitating conservation, sustainable use of living resources, and human wellbeing.
SANBI's mission is to promote the sustainable use, conservation, appreciation and
enjoyment ofthe exceptionally rich biodiversity of South Africa, forthe benefit of all
people.
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workshops, symposia and other activities initiated by or executed in partnership with
SANBI.
Technical editor: Beverley Momberg
Design & layout: Sandra Turck
Cover design: Sandra Turck. Photographs provided by Kerry Sink, Marine & Coastal
Management, Marine GeoSolutions and the African Coelacanth Ecosystem pro-
gramme.
Citation
SINK, K. & ATTWOOD, C. 2008. Guidelines for Offshore Marine Protected Areas
in South Africa. SANBI Biodiversity Series 9. South African National Biodiversity
Institute, Pretoria.
Authors' addresses:
WWF
Dr Kerry Sink, Offshore Biodiversity Initiative, South African National Biodiver-
sity Institute, Private Bag X7, Claremont 7735, Cape Town.
Colin Attwood, Zoology Department, University of Cape Town, Private Bag,
Rondebosch, Cape Town.
ISBN 978-1-919976-43-3
© Published by: South African National Biodiversity Institute.
Obtainable from: SANBI Bookshop, Private Bag XI01, Pretoria, 0001 South Africa.
Tel.: [phone]. E-mail: [email protected]. Website: www.sanbi.org.
Printed by D & V Lesedi Printers, 22 Eland Street, Koedoespoort, Pretoria, 0186
South Africa.
Gantenta
Guidelines for Offshore Marine Protected Areas in South Africa
Executive summary
Introduction
What are Marine Protected Areas (MPAs)?
Rationale
International and national context
Objectives
The status quo: currentspatial protection of marine biodiversity in
South Africa
Our planning approach
References
Guidelines for Offshore Marine Protected Areas
in South Africa
Kerry Sink 13 and Colin Attwood 6
October2007
a
draftofthis documentwas used as a background ata stakeholderworkshop in
June 2007. Thefollowing individuals provided feedback on the draftversion ofthe
guidelines, and the objectives and approach werefinalized atthe stakeholderworkshop.
Itshould be noted thatthisfinal version does not reflectthe views ofall contributors on
all aspects:
Deon Nel3 Mandy Lombard4 DaveJapp5 George Branch6 Lindiwe Mthunzi7 Lebeau
, , , , ,
Labuschagne8 Robin Leslie2 Larry Hutchings2 ToufiekSamaai2 Theressa Frans2 Craig
, , , , ,
Smith2 Lara Atkinson6 Kristal Maze1 Amanda Driver1 Samantha Petersen3 Neil Fra-
, , , , ,
ser9'10, Lesley Roos10, Roy Brass11, Andrew Kaye12, WallyCroombe13, Karen Humby14,
Jeremy Hare15 Nick de Kock15 Marek Ranoszek16 Jessica Courtereille17 and Doug But-
, , ,
terworth6
1SouthAfrican National BiodiversityInstitute
2DepartmentofEnvironmentalAffairs&Tourism, Marine&Coastal Management
3WWF,SouthAfrica, Marine Program
4ConservationSystems
5Capfish
6UniversityofCapeTown
7 PetroleumAssociationSouthAfrica
8DepartmentofMineralsand Energy
9Marine Diamond MinersAssociation
10DeBeersMarine
11SouthAfrican DeepSeaTrawl IndustryAssociation
12SouthAfrican Hake LongLiningAssociation
13NationalLinefishAssociation,WestCoast& PeninsularCommercialSkiboatAssociation
14SouthAfricanSquid ManagementIndustryAssociation
15SouthAfrican FreshTuna ExportersAssociation
16Offshore PetroleumAssociationofSouthAfrica
17PetroSA
TheOffshoreBiodiversityInitiativepromotes eco-
system-based managementofSouthAfrica’smarine
territorythroughtheestablishmentofa networkof
offshoreMarine ProtectedAreasandco-operative
national
biodiversitymanagement.Offshoreindustriesand biodiversity
institute
governmentareworkingtogethertosecuretheover- S A N B
I
all healthofoffshore marineecosystemstomeetthe
needsofpresentandfuturegenerations.The project
wasinitiatedwithfinancialsupportfromtheWWF
Greentrust.
Executive summary
{'TheOffshore Marine Protected Areas(MPA) Projectaimstofacilitatethedevelopmentofa
«!/ representativeoffshore MPAnetworkthathas broadsupportfromthevariousoffshore ma-
rine usesectorsand is based onthe bestavailablescientific information,fortheconservation of
South Africa’soffshore biodiversityandthewise use ofoffshore marine resources. Aproposalfor
an offshore MPAnetwork is beingdevelopedjointlybytheSouth African National BiodiversityIn-
stituteandthe DepartmentofEnvironmental AffairsandTourism’s Marineand Coastal Manage-
mentBranch in consultation withthe DepartmentofMineralsand Energy,the Petroleum Agency
SouthAfrica, and stakeholdersfrom commercialfishing, mining, petroleum and othermaritime
industries.Thisdocumentoutlinesthe rationale, objectivesand proposed approachforthe estab-
lishmentofa representativesystem ofoffshore MPAsfortheSouthAfrican Exclusive Economic
Zone(EEZ)andterritorial waters.The intention oftheguidelines istocommunicatethe proposed
aimsand projectmethodsto interested and affected partiesand in sodoingstimulate debate
and encourage participation inthedevelopmentofan offshore MPA networkthrough a consulta-
tive process. An earlierdraftformedthe background documentthatwas refined ata stakeholder
workshop inJune 2007.
The developmentofoffshore MPAs isSouth Africa’sfirstattemptatarea-specificconservation
ofoffshore habitatsand ecosystems. Itaddressesone ofthe priorityactionsfromthe National
Spatial BiodiversityAssessmentand contributestoa representative MPAnetworkforSouth Africa.
Offshore MPAsare neededtoavertthe progressivedegradation ofoffshore environmentsand
resources, contributetosustainable resource use, allow recoveryofimpacted habitatsand fish
stocksand meetinternational biodiversitycommitments.The projectdrawstogetherforthefirst
time, managersand stakeholdersfrom several governmentdepartmentsand industrysectors. It
representsan importantsteptowards integrated ecosystem-based managementforour EEZ, and
maintainingfutureoptionsforresource use.
SouthAfrica'sexistingMPA networkcannotbe considered representative because itis biased
towards inshoreareasandtheeastcoast. Several bioregionsand habitattypesarewithoutany
form ofprotection, whileothersfall shortofthetargetssetfor protection.TheSouthAfrican
governmenthas international and national commitmentsto protectmarine biodiversity, ecologi-
cal integrityand ensurethesustainable useofresources.Theseobligations have been ratified
underseveral international conventionsand agreementsand areembedded in local legislation
and policy. Representative MPAnetworksare recognized asa critical componentofcommitments
relatedtotheConvention on Biological Diversity(CBD),theWorld SummitforSustainable Devel-
opment(WSSD)andtheWorld ParksCongress. MPA networksarean important partoftheglobal
movementtowardsa more holistic managementapproachthatconsidersentireecosystems,
multiplesectorsand manymanagementobjectives. SouthAfrica’scurrentEEZextendsto200
nautical milesoffthecoastline butonly0.16% is presentlyprotected in MPAs.
Theagreed objectivesofthe Offshore MPA projectaretheestablishmentofan ecologically
representative networkofeffectively managed MPAsthatincludeall marine habitattypes in all
bioregionsofSouthAfrica:
• tocontributetothe long-term persistenceofoffshore biodiversityand its underlying
processes;
• tocontributetosustainabilityoffisheriesand ecosystem-based managementofresources;
• to provide undisturbed areasforscientificstudyand long-term monitoring;
• toadvance integratedspatial planningand managementarrangementsforthe EEZ;
• to promoteappropriate non-consumptive useoftheoffshore marineenvironment.
ItisemphasizedthatMPAsshould beseen inthecontextofa setofcomplementaryand inte-
grated conservation and industrymanagementmechanisms. Itis recognizedthat MPAplanning
should be integrated withthe managementoffisheriesand other maritime industries.
TheSouthAfrican EEZprovidesconsiderableeconomicopportunitiesand supports manycom-
mercial activities.The projecthasundertaken a reviewofexistingactivities in our EEZto provide
profilesforvariousoffshoresectors in supportofthe planningphaseofthe Offshore MPA Project.
These include petroleum, diamond mining,fishing, maritimetransport, waste disposal, submarine
communications, science and marinedefencesectors.
The proposed projectapproach recognizesand addressesthe problemsassociated with previous
attemptstosecure protection foroffshore habitats.
Keyelements inthe project methodology include:
• 1,systematic planningbased onthe bestavailable, existingscientificand socio-economic
research;
• 2, an integrated spatial planningframeworkwith shared spatial data between sectorsand col-
laboration between and within governmentdepartments;
• 3, application ofotherexperience ofMPAsand spatial planning;
• 4, stakeholder involvementinthe planningand implementation process;
• 5, consideration ofappropriatetrade-offsamongthe interestsofbiodiversityand different
usergroups;
• 6, raisingawarenessofMPA benefits, design and supportingscience;
• 7, identifyingand addressingimplementation and managementconcerns includingcompli-
ance and monitoringforoffshore MPAs;
• 8, ongoingalignmentwith policyand legislation.
Systematicconservation planningisa branch ofconservation planningthatidentifiesand evalu-
atesareasforin situconservation.The inclusion ofavailablescientific knowledgetoguidethe
design ofan MPA network has been identified asa critical componentofthis methodology. We
recognizethatoffshore biodiversity in South Africa is poorlyunderstood butaflexibleapproachto
planningthatcan adaptwith increasingknowledge is proposed. The projectwill drawfrom current
researchfocused on offshore biodiversitypattern, processes(such as research on spawning, lar-
val distribution, nurseryareasand criticalfeedingorbreedingareas), and impactsofcommercial
activities inthe EEZ. Weexpectthatoffshore industriescould contributetotheauditingofbio-
diversity, ground-truthingofhabitattypes,testingofbiodiversitysurrogatesand identification of
vulnerable habitats.Thesharingofspatial information bythegovernancesectorsfor biodiversity
conservation,fisheries, mining, petroleum activities, maritimetransport,submarinecommunica-
tion and defencewillfacilitateco-ordinated planning.
The projectplansto drawfrom experience inthe design and implementation ofMPAsand spatial
plansandto identifyand address implementation and managementconcerns. A legislative re-
view has been commissionedtoexamine legal constraintsand opportunities. EffectsofMPAson
commercial exploitation will be considered andthe projectdependson meaningful stakeholder
involvement inthe planningprocessandtheconsideration ofsocial and economicfactors. Op-
portunitiesfordirectstakeholder participation are identified.
SANBI Biodiversity Series 9 [2008]
Introduction
outh Africa isfamiliarwiththeconceptof Thisdocumentspecificallyaddressesthefirst
Marine ProtectedAreas(MPAs)and ap- action.The remainingactionsare plannedto
proximately9%ofourcoastline isconserved be undertaken byOctober2009 with initial
withinfullyprotected MPAsand afurther 14 proposed priorityareas identified and reviewed
%within MPAszonedforuse. Ouroffshore during2008.The establishmentofafull net-
einnvMiPrAosn,mewintthhoonwleyve0r.,16is%nootfwoeulrlErxecplruesisveented wwiollrkcoonftMinPuAesafistearmtehedipurmoj-etcetrhmasobejencdteidv.eTthhaet
sEhcoorneomhiabcitZaotnsewiptrhoitnecatned.MPInAclnuestiwoonrokfwofafs- Offshore MPAprojectisfunded bytheWWF
Marine Program andSANBI.
highlighted asa priorityaction bySouthAfri-
ca’s National Spatial BiodiversityAssessment
Theseguidelinesoutlinethe rationale, objec-
(Lombard etal. 2004; Drivereta/. 2005).
tivesand proposed approachfortheestablish-
The Offshore MPA projectaimstofacilitate mentofa representativesystem ofoffshore
the establishmentofan offshore MPAsystem Marine Protected Areas(MPAs)forSouth
with broad supportfromthevariousoffshore Africa.The purpose ofthisdocumentisthree-
sectors.The MPAswill be designed withthe fold:
bestavailablescientific information,forthe • tocommunicatethe needforOffshore
persistentconservation ofSouth Africa’soff- MPAsandthe proposed methodologyfor
shore biodiversityandthewise useofoffshore theirestablishment;
marine resources.Aproposed network is being
cooperativelyidentified bytheSouthAfrican • totriggerfeedbackonthe proposed objec-
National BiodiversityInstitute (SANBI)and tivesand approach;
the DepartmentofEnvironmentalAffairsand
Tourism's Marineand Coastal Management • toengagestakeholderswith a viewto
Branch in consultation withthe Department obtain spatial inputs into planningframe-
ofMineralsand Energy,the Petroleum Agency works.
South Africa, and stakeholdersfrom com-
mercialfishing, mining, petroleum and other Thetargetaudience includesgovernment
maritime industries. Forthefirsttime,this departments(includingthe Departmentof
projectdraws managersfromseveral govern- Environmental Affairsand Tourism, Marine
mentdepartmentsandtherefore represents and Coastal Management, Departmentof
an importantsteptowards integrated ecosys-
Mineralsand Energy, Petroleum AgencySouth
tem-based managementforthe EEZ.
Africa,South African MaritimeSafetyAuthority,
TheSANBI-WWFOffshore MPA projectisa National PortsAuthority, SouthAfrican Navy,
threeyearprojectwiththefirstyear(2007) SouthAfrican National Biodiversity Institute,
constitutinga planningphase. Implementation SouthAfrican National Parks), industrystake-
isexpectedtotake place in stagesfrom 2008 holders(Fishing,Aquaculture, Mining, Petro-
onwards.TheOMPAprojectwill leum, Shipping, Undersea Communications,
• develop broadlyaccepted objectivesand Defence, Wastedisposal, Research)andthe
guidelinesfortheestablishmentofoff- general public. TheobjectivesoftheOffshore
shore MPAs; MPA networkare discussed andthe keyele-
mentsofthe planningapproach areexplained.
• collatescientificdata and otherinformation
tosupporttheestablishmentofoffshore Thedevelopmentofoffshore MPAs represents
MPAs;
SouthAfrica’sfirstattemptatarea-specific
• identifypriorityareasforthe protection of conservation ofoffshore habitatsand ecosys-
offshore biodiversityand resources. tems.
SANBI Biodiversity Series 9 [2008)
What are Marine Protected MPAsarewidelyregarded asone ofthe most
Areas (MPAs)? effective mechanismsforprotectingmarine
biodiversity. However, MPAsshould beseen
Convention on Biological Diversity inthecontextofa setofcomplementaryand
definesan MPAas: integrated conservation and management
‘anydefined area within oradjacenttothe mechanisms. Other mechanismsfor marine
marineenvironment,togetherwith itsoverlay- conservation include:
ingwatersand associated flora,fauna and • species-specific managementmeasures;
historical and culturalfeatures, which has
been reserved by legislation orothereffective • ecosystem approachesto managementof
means, includingcustom,withthe effectthat fisheries;
its marine and/orcoastal biodiversityenjoys • effectiveenvironmental managementplans
a higherlevel ofprotectionthan itssurround- for mineral and petroleum activities;
ings.’
• reduction and managementofmarine pol-
In South Africa, no-take MPAs(no marine living lution;
resource extraction is permitted) representthe • the declaration and managementofother
highestlevel ofprotectionthatcan beapplied marine-managed areas.
inthe marine environment. Bydefinition inthe
Marine Living ResourcesAct, MPAscan ex- Rationale
cludefishing, removal ofany livingorganisms,
mining, dredging, pollution, construction and (Theoffshoreenvironmentisan area ofcon-
anyotheractivitiesthat mayadversely impact siderableeconomic, social, and scientific
on theecosystemsofthatarea. Legally,the importance.The marine environmentofSouth
onlyexceptionsareactivities permitted bythe Africa isa diverseand complexseascapethat
Ministerforthe purposesofproper manage- supports rich biological communitiesand
includes resourcesofenormous potential
mentofthe MPA.The Marine Living Resources
Actspecifiesthat MPAsare proclaimedfor benefit. Thewarm Agulhasand cold Benguela
Currentsystems respectivelysupportsubtropi-
three purposes:
cal andtemperatecommunitiesthatinclude
(a)forthe protection offauna andflora ora uniqueassemblagesofmarine life. Conse-
particularspeciesoffauna orflora andthe quently, South Africa hosts manyendemic
physicalfeatureson whichtheydepend; marinetaxa, which occuronlyin SouthAfrica
(b)tofacilitatefisherymanagement by pro- and itistherefore oursole responsibilityto
tectingspawningstock, allowingstock securethefutureofthesespecies. The EEZ
recovery, enhancingstockabundance in constitutesan important basisforeconomic
adjacentareas, and providingpristine com- growth and development. Offshore biodiversity
munitiesforresearch; providesessential goodsand servicesand is
the basisofseveral commercialfisheries.
(c)todiminish anyconflictthat mayarisefrom
competinguses inthatarea. Globally, pressureon offshore resources is
increasingwithtechnological advancesand
The majorfunctionsofMPAstherefore include: diminishinginshore resources resultingin
• exclusion ofthreatsand provision ofrefuge theexpansion ofactivities intodeeperwater
areasfor marine life; (Daviesetal. 2007). There isa growingrec-
ognition ofthe impactsofoffshoreactivities
• preservation ofrepresentative communi- onthesea bed and entire marine ecosystems
ties in their natural state; with manystudiesdemonstratinglong-term
• provision ofundisturbed sitesfor research impactson biodiversity(Neffetal. 1987;
and monitoring; 1989; Hyland etal. 1994; Markussen 1994;
Olsgard &Gray 1995; Goni 1998;Jennings&
• contributiontosustainabilityoffisheries. Kaiser 1998; Watling& Norse 1998; Gisla-
son etal. 2000; Roberts2002; Kaiseretal.
MPAscan also helpto reduce user-conflictand 2003; MinistryofEnvironment, NewZealand
maybe importantforeducation andtourism, 2005; Kaiseretal. 2006; Queirosetal. 2006).
andthe popularandfinancial supportofbiodi- There isalsoan emergingawarenessofthe
versityconservation (Attwood etal. 1997; Rob- social and economiccostsofthefailureto
erts& Hawkins2000; Salm etal. 2000; Gell & manageecosystems in a sustainable manner.
Roberts 2003;SecretariatoftheConvention In manyareas, offshore resourcesareover-
on Biological Diversity2004). exploited andtheglobal statusoffish stocks