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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. 73
8.7 Specific recommendations Based on the above, the following recommendations are made to MCM: Co-management 1. MCM and SABBWWA should enter into a co-management arrangement whereby SABWWA participates in devising and carrying out permit allocation procedures, participating in law enforcement, and in annual performance assessments of permit holders. Representation and communication 2. MCM should nominate a dedicated liaison person who also has contact with all the relevant departments in MCM (i.e. Resource Protection and Permitting). This person could handle all ecotourism-related liaison. 3. MCM’s liaison officer should attend industry meetings. Number of permits 4. Subject to impact assessment, more permits could be issued in the Cape Metro, Sunshine Coast and Maputaland and possibly also in the Agulhas Coast, Hibiscus Coast, and Durban area in the near future. The situation could be reviewed on a regular basis (e.g. every 4 – 8 years). 5. Should the number of permits be increased, this should be done such that no two operators can simultaneously use the same territory, and avoiding competition between operators. It is preferable for existing operators to take up additional permits, rather than splitting existing areas. Allocation of permits 6. A systematic set of criteria and weightings needs to be decided on for the issuing of permits to new applicants. Criteria should include measures of the capability and likely success of the operator, black empowerment, and some indication of the quality of the service to be provided. Boat size should also be a consideration, taking area-specific facilities and conditions into account. 7. Permits need to be checked by the liaison person for accuracy before being issued, and should be accompanied by logbooks and other relevant information Permit duration and conditions 8. Permits should be allocated to a specific boat, but the operator should be allowed to apply to replace the boat. 9. Permits should confer long-term rights, subject to annual payments and performance assessments which check levels of activity, compliance, logbook reporting and standards of service. 10. Performance criteria should be decided in conjunction with the industry and SATOUR. 11. In the event of performance standards not being met, a warning should be issued, followed by withdrawal of the right if necessary. The right should then be readvertised. Permit fees and their use for enforcement and research 12. Fees should be set on the basis of budget requirements for rendering an effective service 13. There should be both visible and incognito policing by MCM 14. Complaints should be followed up and offenders prosecuted 74
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BOAT-BASED WHALE WATCHING IN SOUTH
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owners, who felt that a smaller, fa
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TABLE OF CONTENTS 1. INTRODUCTION..
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1. INTRODUCTION The whale watching
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the main whale watching season. All
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3. WHALE WATCHING: AN INTERNATIONAL
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location. Most cetaceans spend the
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3.2 South Africa in perspective Boa
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Table 3.3 excludes countries where
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west coast up to February or March
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The designated areas also include a
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5. PERMIT-HOLDER CHARACTERISTICS, S
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The majority of permitted operators
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Two very large boats excluded, a ty
Page 32 and 33: November. This is probably due to a
Page 34 and 35: holder, with a total of just over 3
Page 36 and 37: Based on rack rates and the estimat
Page 38 and 39: 5.12 What determines success Based
Page 40 and 41: impact along the Garden Route, anot
Page 42 and 43: 100% 90% 80% 70% 60% 50% 40% 30% 20
Page 44 and 45: 6.2 Western Cape The Western Cape P
Page 46 and 47: Equipment and infrastructure The fu
Page 48 and 49: around 30 to 35 passengers were per
Page 50 and 51: advertising material which offered
Page 52 and 53: generally variable in their length,
Page 54 and 55: Non-permitted activity One dedicate
Page 56 and 57: Equipment, trip characteristics and
Page 58 and 59: 6.4 KwaZulu-Natal KwaZulu-Natal cur
Page 60 and 61: visitors can be accommodated before
Page 62 and 63: Run on its way past Durban. Trips w
Page 64 and 65: Operators in Area 25 also offered d
Page 66 and 67: 6.5 Summary of legal and illegal ac
Page 68 and 69: 7. FUTURE POTENTIAL OF THE INDUSTRY
Page 70 and 71: Overall demand is heavily influence
Page 72 and 73: The most important enabling criteri
Page 74 and 75: The Cape Metro area is a major tour
Page 76 and 77: focused on harbour trips and until
Page 78 and 79: Wetland Park, Pondoland, the Greate
Page 80 and 81: 8.3 The permit system, conditions a
Page 84 and 85: 15. Data collected by operators and
Page 86 and 87: Woods-Ballard, A.J., Parsons, E.C.M
Page 88 and 89: 11. APPENDIX 2. SUMMARY OF COMMERCI
Page 90 and 91: used for whale watching must be acc
Page 92 and 93: Both the National and state governm
Page 94 and 95: effort to be controlled through res
Page 96 and 97: not is broached several times each
Page 98 and 99: 11.5 South America 11.5.1 Ecuador T
Page 100 and 101: The Dominican Republic has strict c
Page 102 and 103: 12. APPENDIX 3: NOTIFICATION OF PER
Page 104 and 105: 4. Applicants must be willing to si
Page 106 and 107: SIMONSTOWN AREA Cape Point Lighthou
Page 108 and 109: PLETTENBERG BAY AREA The Western Bo
Page 110 and 111: (iii) the extent to which the appli
Page 112 and 113: Table I. Rating of the whale resour
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