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Introduction to Aquaculture in the Western Cape
AQUACULTURE
Provincial Government of the Western Cape: Department of Environmental Affairs and Development Planning Edition1 October 2007 Prepared by: Etienne Hinrichsen Division of Aquaculture University of Stellenbosch
INTRODUCTION TO AQUACULTURE IN THE WESTERN CAPE DEA&DP: Introduction to Aquaculture in the Western Cape
i Introduction to Aquaculture in the Western Cape Edition 1 Issued by: Provincial Government of the Western Cape Department of Environmental Affairs and Development Planning Utilitas Building, 1 Dorp Street Private Bag X9086 Cape Town, 8000 South Africa
E. Hinrichsen
Division of Aquaculture, Stellenbosch University Private Bag X1 Matieland, 7602 South Africa Coordinated by: Division of Aquaculture, Stellenbosch University
Private Bag X1 Matieland, 7602 South Africa COPYRIGHT © Republic of South Africa, Provincial Government of the Western Cape, Department of Environmental Affairs and Development Planning 2007. ALL RIGHTS RESERVED.
This document is copyright under the Berne Convention. Apart from the purpose of private study, research or teaching, in terms of the Copyright Act (Act No. 98 of 1978) no part of this document may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage and retrieval system, without permission in writing from the Department of Environmental Affairs and Development Planning. Likewise, it may not be lent, resold, hired out or otherwise disposed of by way of trade in any form of binding or cover other than that in which it is published.
Hinrichsen, E. 2007. Introduction to Aquaculture in the Western Cape: Edition 1. Division of Aquaculture, Stellenbosch University Report. Republic of South Africa, Provincial Government of the Western Cape, Department of Environmental Affairs & Development Planning, Cape Town.
DEA&DP: Introduction to Aquaculture in the Western Cape
ii ACKNOWLEDGEMENTS
The compilation of this document was made possible through a collective effort in which the following people and organisations played a significant role:
The project team from the Department of Environmental Affairs and Development Planning, which was led by Mr. Z. Toefy. The project review committee, consisting of the officials from the Department of Environmental Affairs and Development Planning, The Western Cape Provincial office of the National Department of Water Affairs and Forestry, the Marine and Coastal Management Branch of the Department of Environmental Affairs and Tourism, CapeNature, the Western Cape Provincial Department of Agriculture and the Aquaculture Institute of South Africa. Special appreciation is given to the Aquaculture Institute of South Africa for providing guidance with regard to the content and framework of this booklet, as well as coordinating the review committee. The project implementation team from the Division of Aquaculture of the Stellenbosch University, which was led by Prof. D. Brink. Participants in the aquaculture sector at large who participated in various discussion forums and gave much input around the content of the document.
DEA&DP: Introduction to Aquaculture in the Western Cape
iii PREAMBLE
The Department of Environmental Affairs and Development Planning (DEA&DP or “the Department” hereafter) has compiled this Introduction to Aquaculture in the Western Cape to assist stakeholders with finding basic information pertaining to this sector in the province. It further serves as a forerunner for two more comprehensive guidelines that the Department have compiled, these being:
Development and Operation in the Western Cape. Guideline to the Authorisation Requirements for Aquaculture in the Western Cape. It is important that the referenced guidelines above be consulted if further information is required around best management practices and the authorisation of aquaculture development in the province.
NOTE: This booklet has been specifically compiled for use in the Western Cape Province. Use outside of this province must be sanctioned by the Western Cape Department of Environmental Affairs and Development Planning. DEA&DP: Introduction to Aquaculture in the Western Cape
iv EXECUTIVE SUMMARY
With the rapid growth of aquaculture, the Department of Environmental Affairs and Development Planning have released this booklet as a tool to introduce all stakeholders to the key elements that will contribute to the development of a sustainable aquaculture sector in the Western Cape.
The booklet defines aquaculture and provides details of its nature by explaining the categorisation of aquaculture types. An overview of the global trends in aquaculture is complemented by an indication of the strong position of the Western Cape in the South African aquaculture sector.
The Department’s approach to aquaculture is one through which a facilitative regulatory environment can complement the growth of a successful aquaculture industry. To achieve this, the Department advocates that aquaculture activities are well planned and that the checklist provided in this booklet be used as a foundation from which to conduct comprehensive feasibility assessments into newly proposed aquaculture ventures. Such assessments should cover the choice of species, site selection, market research and legal compliance.
The use of best management practices in aquaculture will ensure the minimisation of unavoidable environmental impacts and the prevention of avoidable impacts associated with the sector.
Aquaculture activities are subject to authorisations from various authorities and in accordance with various laws. In this regard the Department supports an integrated authorisation process in which compliance is streamlined through a chronological approach. DEA&DP: Introduction to Aquaculture in the Western Cape
v CONTENTS ACKNOWLEDGEMENTS ........................................................................................................................................... II
AQUACULTURE .......................................................................................................................................................... 3
DEA&DP: Introduction to Aquaculture in the Western Cape
vi RELEVANT CONTACT DETAILS
Department of Environmental Affairs and
Development Planning 1 Dorp Street, Cape Town Private Bag X9086, Cape Town, 8000 Tel: 021 483 4643 Fax: 021 483 3211 Web: www.capegateway.gov.za Department of Water Affairs and Forestry Private Bag X16, Sanlamhof, 7532 Tel: 021 950 7100 Web: www.dwaf.gov.za Department of
Agriculture Muldersvlei Road, Elsenburg Building Private Bag X1, Elsenburg, 7607 Tel: 021 808 5005 Fax: 021 808 5000 Web: www.capegateway.gov.za Marine and
Coastal Management Branch: Department of Environmental Affairs and Tourism 2nd Floor, Foretrust Building, Foreshore, Cape Town Private Bag X2, Roggebaai, 8012 Tel: 086 112 3626 or 021 402 3036 Fax: 021 402 3009 Web: www.mcm-deat.gov.za CapeNature CapeNature House,
Belmont Park,
Belmont Road,
Rondebosch Private Bag X29, Rondebosch, 7701 Tel: 021 659 3400 Web: www.capenature.org.za Aquaculture Institute of South Africa PO Box 51743, West Beach, 7449 Tel: 021 556 7339 Fax: 021 556 4428 Web: www.ai-sa.org.za South African Bureau of Standards Liesbeek Parkway, Rosebank, Cape Town PO Box 615, Rondebosch, 7701 Tel: 021 681 6700 Fax: 021 681 6701 Web: www.sabs.co.za Aquaculture Association of Southern Africa PO Box 71894, The Willows, 0041 Tel: 012 807 6720 Fax: 012 807 4946 Web: www.aasa-aqua.co.za
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Aquaculture is a relatively new production sector in South Africa. An awareness and understanding of the manner in which aquaculture works, including the technologies and methods, the business principles and the impacts (financial, social and environmental) is still limited. For this reason the Department has compiled this booklet and other guidelines as its contribution to the establishment of a sustainable aquaculture sector in the Western Cape.
Aquaculture will continue to grow due to a growing demand for aquaculture products, continuously declining marine fisheries stocks and the diversification of business opportunities offered by the sector. To accommodate this growth in a sustainable manner all stakeholders, including both the public and private sectors, must cooperate around responsible development.
Aquaculture is defined as the propagation, improvement, trade or rearing of aquatic organisms (plant and animal) in controlled or selected aquatic environments (fresh, sea or brackish waters) for any commercial, subsistence, recreational or other public or private purpose.
Aquaculture does not include capture fisheries, which entails the harvesting of aquatic organisms from an environment in which no attempt has been made to manage or otherwise influence the organisms by containment, feeding or application of any husbandry techniques.
The aquaculture sector employs a range of production techniques that can be classified according to the nature of water use, the environment in which the activity is practiced, the scale and intensity, the degree of “openness” to the environment, the species, the housing facilities for production organisms and more. Firstly, aquaculture is carried out as either freshwater aquaculture or marine aquaculture (or mariculture), which is practiced in fresh and marine waters respectively. Estuarine and brackish water aquaculture straddles the divide between fresh and marine water aquaculture.
Aquaculture can further be defined in terms of the intensity of production. The typical classification in this regard refers to extensive production as opposed to semi-intensive and intensive production, where the level of technology, capital expenditure, running costs, control, risk and volume of production per unit area typically increases from the less to more intensive practices. Associated, but not necessarily linked to this, is the magnitude of production that can be broadly divided into small-scale operations (often subsistence ventures), medium scale enterprises and large-scale enterprises (often referred to as industrial aquaculture).
A range of production facilities are used in aquaculture and these can be broadly categorised into tank culture, pond culture and cage culture systems. Within each of these categories various subcategories can be identified. Tank culture can range from typical glass tanks to tanks of various sizes constructed of fibreglass, plastics, concrete or other materials. Pond culture typically refers to earthen ponds, but various plastic, concrete or other pond linings are common. Cage culture systems range from basic penned enclosures and basic floating cages to technologically advanced systems that are constructed from materials such as polyethylene.
Categorisation by species not only refers to marine or freshwater species, but also to the typical species groups such as reptiles, finfish, crustaceans, molluscs, aquatic plants or algae. DEA&DP: Introduction to Aquaculture in the Western Cape
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Globally the development of aquaculture is driven by market forces, the diversification of the economic base, the sustainable utilization of resources and a quest for food security. In this regard, aquaculture has developed into a diverse industry, with many countries participating in the production of many species of fish, shellfish, crustaceans and aquatic plants. Rohana Subasinghe, an aquaculture specialist with the Food and Agriculture Organisation (FAO), recently stated that the percentage of fish produced in global aquaculture for human consumption has grown from 9% in 1980 to 44% today (2007). Globally, aquaculture is growing more rapidly than any other food-producing sector.
The global harvest of natural aquatic resources for food, protein, oils and other materials has reached capacity and has already caused a collapse in the stocks of certain species, habitat loss and pollution. Nevertheless, the demand for these aquatic resources is increasing and aquaculture production has the potential to meet this demand. This is especially relevant to the Western Cape, as the province is well know for the harvest of natural marine resources, but also possesses the potential for the development of a strong marine and freshwater aquaculture sector. This new sector will also contribute, in an increasing manner, to the diversification of resource utilisation, economic activity, the creation of employment, rural development, food security, poverty relief and the development of technology and skills. Aquaculture has a significant potential for empowerment, community-private-public and other partnerships, often without the need for complicated reform processes.
The further growth of aquaculture in South Africa and the Western Cape depends on the successful integration, use and development of natural resources (water, land, climate, energy and biodiversity), human resources (labor, skills and technology), economic resources (capital, infrastructure and market access) and a facilitative regulatory environment.
Both in terms of production volume and crop value, the Western Cape is the most significant contributor to the collective aquaculture output in South Africa. In a recent benchmarking survey (Botes et al., 2006) it was found that the Western Cape is the economic hub for aquaculture production in the country and makes the most significant contribution to GDP in terms of export based production. The survey found that 43.8% of aquaculture producers are situated in the Western Cape, followed by Mpumalanga, KwaZulu Natal and the Eastern Cape with 12.5% each. These statistics reveal the importance of the Western Cape in terms of aquaculture development.
Various marine and freshwater aquaculture species are currently cultivated in the Western Cape Province. These include:
a) Marine species o Abalone (Haliotis midae) o Various marine finfish under investigation (including cob (Argyrosomus spp.)) o Mediterranean mussel (Mytilus galloprovinvialis) o Pacific cupped oyster (Crassostrea gigas) o Seaweed species (Gracilaria spp.) b) Freshwater species o African catfish (Clarias gariepinus) o Carp (Cyprinus carpio) DEA&DP: Introduction to Aquaculture in the Western Cape
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o Goldfish (Carrasius auratus and other spp.) o Ornamental fish (various ornamental species) o Rainbow and brown trout (Oncorhynchus mykiss and Salmo trutta) o Largemouth bass (Micropterus salmoides) o Chinese grass carp (Ctenopharyngodon idella) o Koi carp (Cyprinus carpio) o Marron (Cherax tenuimanus) o Mozambique and other tilapia species (Oreochromis spp) o Nile crocodile (Crocodylus niloticus) o Water hawthorn (Plantae aquaticae) In addition to the Western Cape’s leading position in the South African aquaculture sector, the province is also home to the Marine and Coastal Management Branch of the Department of Environmental Affairs and Tourism (MCM: DEAT), four tertiary institutions with strong links to aquaculture (the Universities of Cape Town, Stellenbosch, Western Cape and the Elsenburg Agricultural College) and the Aquaculture Institute of South Africa (AISA).
PLANNING ON AQUACULTURE
In terms of aquaculture, the Department is primarily concerned with the provision of an accessible and enabling regulatory framework to guide the development of sustainable aquaculture practises in the Western Cape and to ensure that the Department is prepared and equipped to deal effectively with the growing aquaculture sector. Through the establishment of an accessible regulatory framework, the Department seeks to be an integral stakeholder and partner in the growth and equitable intensification of the sector. In this manner the Department will strive towards the achievement of the socio-economic and development based objectives of the National Environmental Management Act.
The use of natural resources for aquaculture poses the potential for impacts to these resources and the associated social, economic and biophysical environments. In order to ensure the sustainability of the sector it is imperative that these resources are protected, and that their utilisation for aquaculture is based on sound management, while ensuring equitable benefits to all. This leads to the necessity for the implementation of best environmental management practises in aquaculture, which will assist the Department in its contributions towards a sustainable industry. For this reason the Department has compiled both a best management practise guideline and a guideline to the authorisation requirements for aquaculture in the province.
Due to the diverse nature of aquaculture and the fact that it is influenced and controlled by legislation and mandates from various Government Departments, DEA&DP strive to interact in a co-operative manner towards the aquaculture initiatives in other Departments. This will lead to the formulation of a common and conducive approach to the aquaculture sector, forming the foundation for cooperative governance. This cooperative approach is manifested in the integrated authorisation process for aquaculture as described in the Department’s guideline on the authorisation requirements for aquaculture in the province.
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Best management practices, legal compliance, sustainability and responsible growth of the aquaculture sector all depend on comprehensive and integrated planning around resources, social matters, environmental aspects, technical matters and economics. For this reason the Department supports and encourages good planning in aquaculture to ensure that the resultant environmental footprint of any aquaculture activity is limited and met by mitigation measures that can ensure sustainability. Such planning should be based on a feedback process in which designs, plans, strategies and processes are continuously tested against the applicable resource, social and environmental matters so that any concept can be modified to best achieve a minimisation of negative impacts. The
Department also supports meticulous planning to limit the negative impacts that may be caused by failed or sub-economic aquaculture ventures.
Just like any other business venture, aquaculture requires a detailed feasibility study before initiation. The development of aquaculture activities must not be based on a perception of aquaculture being an appealing lifestyle choice.
To support prospective aquaculturists, the Department has devised a basic checklist that should be used in the planning of new aquaculture ventures. This self guided primer for prospective aquaculturists only covers the basic drivers of a successful aquaculture practice and it will be necessary for further research into the viability of any new venture.
Basic checklist of aspects for the planning of a sustainable aquaculture venture: Aspect to be considered Questions to be asked Organisations that could assist with one or all of the questions (contact details provided on page vi) Choice
of a Species
Is the species indigenous, exotic or extralimital?
If exotic, does the species occur in the area?
Is the species suited to the conditions and climate?
Are the rearing, biology and husbandry techniques for the species known?
Have the various approaches to production of the species been investigated?
Is feed readily available for the species?
What are the market prospects for the species?
Will the chosen species be spawned on site and if not, are sources of juveniles available?
Cape Nature
Department of
Agriculture
Marine and
Coastal Management Branch of the Department of Environmental Affairs and Tourism (for marine species)
Aquaculture Association of Southern Africa
South Africa Choice of a Site
objectives and is the site correctly zoned?
Can legal access be gained to the site?
Does the site have adequate water resources that can be accessed legally?
What services (electricity, water, roads, sewage and refuse) are required?
What infrastructure is required?
What is the surrounding land use and how will this
Cape Nature
Department of
Agriculture
Marine and
Coastal Management Branch of the Department of Environmental Affairs and Tourism (for marine sites)
Department of Water DEA&DP: Introduction to Aquaculture in the Western Cape
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influence the project?
What is the environmental sensitivity of the area?
Have floods, tides, winds and other forces of nature been considered?
Has aquaculture effluent discharge been considered?
What will the influence of the project be on its neighbors? Affairs and Forestry
Local Authorities
Aquaculture Association of Southern Africa
South Africa General Feasibility
done for the project?
Is the project financed and has provision been made for capital reserves?
Are the required human resources and skills available?
Are the required support services in place and have the logistical needs been considered?
considered in detail?
Have social matters been addressed. Is the project acceptable to neighbors and local communities?
of Southern Africa
Aquaculture Institute of South Africa
Market Analysis
Have the markets been identified and secured?
Has market timing, seasonality, needs and price been research?
Can the quality demand of the market be matched or bettered?
In what form should the product be presented in the market?
Have market logistics (handling, freezing etc.) been considered?
Have the phytosanitary and other legal requirements been addressed?
of Southern Africa
Aquaculture Institute of South Africa
Agriculture Marketing Council
Authorisations and Legal Matters
Does the project require approval in terms of the National Environmental Management Act?
authorisation?
Are any marine aquaculture permits required?
Are any transport permits for aquaculture organisms required?
organisms required?
Are any authorisations required from the Local Authorities?
Department of Agriculture
of Environmental Affairs and
Development Planning
and Coastal
Management Branch of the
Department of
Environmental Affairs
and Tourism (for marine sites)
Department of Water Affairs and Forestry
Local Authorities
Aquaculture Association of Southern Africa
South Africa
In addition to the planning matters above, the document titled Generic Environmental Best Management Practice Guideline for Aquaculture Development and Operation in the Western Cape also contains specifications related to planning around the operational activities of an DEA&DP: Introduction to Aquaculture in the Western Cape
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aquaculture venture or project. These operational best practices should also be used to provide direction in the design, layout and planning of a sustainable project.
(BMP’S) IN AQUACULTURE
BMP’s are defined as the management of activities to achieve an ongoing minimisation of the activities’ environmental harm through cost -effective and continually assessed measures.
By their nature, BMP’s refer to a wide range of interventions that can be made to improve or optimise performance in financial, social, environmental and other areas or sub-categories. The term has however been adopted strongly into the realm of responsible environmental management. In this context BMP ’s promote the minimisation of unavoidable environmental impacts and the prevention of avoidable impacts associated with aquaculture activities.
The importance of BMP’s in aquaculture is driven by:
a) The need for aquaculture to be in compliance to legislative obligations, b) The need for resource protection and conservation, c) The need for resource use to be equitable, responsible and sustainable, d) The need for the aquaculture sector to become recognised as environmentally responsible and sustainable, e) The need for the aquaculture sector to provide independent norms and standards by which it can be held accountable, and f) The need for the sector to illustrate adequate environmental due diligence.
Furthermore BMP ’s in aquaculture should:
a) Be relevant to the nature of the aquaculture sector, b) Be practical and provide for ease of implementation, c) Provide options for management, d) Be flexible, e) Provide a mechanism for environmental self-regulation, f) Fall within the legal requirements for aquaculture development and operation, and g) Provide clear standards for performance and monitoring.
Due to the great importance of BMP’s in sustainable aquaculture development, the Department has compiled a comprehensive guideline on the subject. This guideline is titled Generic Environmental Best Management Practice Guideline for Aquaculture Development and Operation in the Western Cape. This guideline provides BMP techniques to minimise the potential environmental impacts associated with aquaculture and highlights the environmental matters related to aquaculture. These matters are divided into four main categories, these being: a) The approach required towards the surrounding biophysical environment of aquaculture activities, b) The approach required towards the infrastructure environment of aquaculture activities, c) The approach required in the operational or production activities of aquaculture, and d) The approach required in dealing with the social environment around aquaculture.
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BMP’s are also the building block s in contingency planning. These elements and the BMP’s however need regular auditing and review to ensure that they remain relevant to the given situations. THE INTEGRATED AUTHORISATION PROCESS FOR AQUACULTURE The integrated authorisation of an aquaculture activity refers to a process in which all the relevant authorities and stakeholders provide the required inputs, authorisations and permits to ensure that any proposed aquaculture project or venture is in compliance with the applicable resource based legislation. The Department has compiled a detailed guideline document on the authorisation process titled Guideline to the Authorisation Requirements for Aquaculture in the Western Cape. The core objectives of this guideline are:
a) To provide guidance on the process, steps and procedures to follow in applying for the authorisation of an aquaculture activity in terms of the legislation for which DEA&DP is mandated, b) To provide guidance on the process, steps and procedures to follow in gaining authorisation for an aquaculture activity in terms of other resource based legislation administered by other authorities, and c) To provide guidance on the integration of the respective authorisation processes overseen by the different authorities.
In order to simplify the authorisation process it has been broken down into ten clearly defined steps as follows (consultation with the abovementioned guideline is important for further information pertaining to this process):
a) Step 1: Formulation of an aquaculture project. This step consists of conceptualisation of a project or venture so that the concept can be used to inform the authorisation process.
b) Step 2: Choosing of a candidate species. This step consists of the identification of an appropriate species and may require consultation with various Government Departments and organisations, especially when the use of exotic species is considered. c) Step 3: Land access planning. This step consists of ensuring that the land earmarked for a proposed aquaculture project or venture is rightfully owned or that consent is obtained for the use of the land.
d) Step 4: Land use planning. This step consists of ensuring that the land use planning for a proposed project or venture is in place. These land use planning aspects include: o Ensuring that the land is correctly zoned, o Ensuring that building plans are in place for any new structures, and o Ensuring that due consideration is given to any environmentally sensitive areas. e) Step 5: Service planning. This step consists of ensuring that the necessary services and service infrastructure (electricity, water, roads, sewage services, telecommunications etc.) is available at the required capacity.
authorisation from the Department of Water Affairs and Forestry. DEA&DP: Introduction to Aquaculture in the Western Cape
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g) Step 7: Marine resource planning. This step consists of informing and gaining authorisation for all mariculture activities from the Marine and Coastal Management Branch of the Department of Environmental Affairs and Tourism.
h) Step 8: Environmental planning. In this step a determination is made whether a project requires an environment authorisation and the process by which such an authorisation is gained. The requirement for such an environmental authorisation is triggered by the activities listed in GN R 386 and GN R 387. In cases where an environmental authorisation is required, an application must be made in this regard to the Department.
i) Step 9: Permitting. This step determines which additional permits may be required by an aquaculture venture. In this regard permits may be required from: o CapeNature for the capture or transport (including export and import) of live organisms and for the keeping of certain endangered or exotic species, o The Marine and Coastal Management Branch of the Department of Environmental Affairs and Tourism for the capture or transport (including export and import) of all marine organisms and for the keeping of certain endangered or exotic species, and o The Veterinary Services of the Department of Agriculture for the import or export of aquaculture organisms.
j) Step 10: Post approval planning. Once the necessary authorisations have been obtained, there may be a requirement for the implementation of ongoing checks and balances, and in certain cases, renewal of the authorisations. These post approval requirements may include internal and external compliance and/or environmental audits, reporting, record keeping, permitting and renewals as required by the respective authorities.
Although the steps above are sequential, the emphasis remains on their integration into a logical process in which the concurrent execution of certain steps is possible. In order to achieve this integration it is important to consult the associated Guideline to the Authorisation Requirements for Aquaculture in the Western Cape. The Department also has various generic guidelines that pertain to the application process and compliance with the National Environmental Management Act and associated regulations.
A full list of contact details is provided on page vi of this booklet. The list contains the contact details of all the authorities involved in the development and authorisation of aquaculture. Furthermore, contact details are provided for the Aquaculture Association of Southern Africa and the Aquaculture Institute of South Africa. The Association is the umbrella representative of aquaculture producers, while the Institute is an important development agency and link between the aquaculture sector and the Government at large.
The booklet provides a basic overview of what aquaculture is, what needs to be taken into consideration when planning an aquaculture venture, best management practises in aquaculture and an overview of the processes that must be followed in the authorisation of aquaculture activities. This information will assist prospective aquaculturists, authorities, financial institutions and other parties that may come into contact with the rapidly expanding DEA&DP: Introduction to Aquaculture in the Western Cape
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aquaculture sector. All these parties will be able to use this booklet as an entry point to further information from the Department and from other sources.
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