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Monitoring will also be vital for ensuring that the value of the industry is maximised in the longer term,
and should address both demand versus supply, as well as impacts on the resource. Logbook data
needs to be filled analysed and reported regularly. Not all permit holders fill in log books properly, and
MCM has been slow to provide analysis and feedback on log book data. These problems perpetuate
one another, and reduce the benefits that could be derived from good monitoring of the industry, such
as early warnings of resource impacts and indications of capacity for expansion. There is currently no
monitoring of non-permitted operators, which is also crucial to the analysis of the industry and its
ecological and economic impacts.
8.5 Co-management
MCM’s ability to manage the industry could be greatly enhanced under a co-management
arrangement. The operators have the potential to be the ‘eyes and ears’ of the industry, reporting
illegal activity by non-permitted operators, and infringements by other operators. MCM would have to
respond accordingly and would have to follow up on the prosecution of offenders. It is inadvisable to
put enforcement entirely in the hands of the industry, as some desire. While an ecotourism industry
theoretically has an incentive to protect the resource upon which it depends, this may not extend to
self-policing, as the huge separation between operators makes the situation vulnerable to free-riding
and even co-operative non-compliance by neighbouring operators.
Co-management is also essential in the allocation of permits. The system of allocation needs to be
made transparent, and needs to include criteria that indicate the likelihood of success and equity
considerations. Some permits have been issued to operators who have not taken them up or who
have not been able to make a success of it. Several permitted operators have greatly reduced or
ceased their activities. In some cases this has been due to operational problems, while in others,
permit holders have moved on to other activities. This affects the overall output of the industry, both
directly and indirectly through affecting overall impressions of service standards and reliability of the
industry generally. It also prevents others from entering the industry legally. The selection criteria
and process need to be jointly devised by MCM and the industry, and possibly other independent
parties. It is also advisable to include field-based assessments in addition to the paperwork
requirements.
To facilitate co-management, better communication channels need to be devised, preferably through
a single liaison person at MCM and in SABBWWA. This is a concern that was raised by most permit
holders. In turn, SABBWWA also needs to ensure that it respresents the interests of all its members
as far as possible.
8.6 Distributional issues
Maximising the economic potential of the industry will involve more than just maximising turnover
within sustainability limits, as discussed above. While industry turnover is arguably the most
important aspect, in that it directly and indirectly generates income and jobs. This effect is only
maximised, however, when leakages from the industry are minimised. South Africa does relatively
well in this regard, in that most whale watching occurs on locally-owned boats, many of which are
locally-made, rather than, for example, large imported or foreign-owned ‘gin palaces’ and cruise
liners. Direct attraction of tourists by operators or through local travel agencies result in fewer
leakages than arrangements whereby foreign-based tour companies bring clients to operators. In the
latter cases much of the expenditure generated by whale watchers accrues to foreign countries. A
similar principle applies to the related industries that benefit from whale watching tourism.
Another important goal is to maximise the overall welfare gains by ensuring an equitable distribution
of benefits. Boat-based whale watching already attracts business to outlying areas that often have
the poorest communities. While maximising turnover should be a primary goal as the most efficient
way of generating income and jobs directly and through linkage and multiplier effects, efforts need to
be made to ensure that much of these benefits accrue to communities that need development. This
may be through black empowerment initiatives, job creation or some form of community upliftment.
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